LB 2529 
.W6 
1910 
Copy 1 



REPORT 



OF THE 



Special Committee 



ON 



Education 



WISCONSIN LEGISLATUKE 

'M'na 3r>N5rH3J:T>j a all 



3±vonHnn 



COMMITTEE: 

SENATORS 

J. H. STOTTT, Chairman, 
W. R. Gaylord, 

C. Iv. Pearson. 

ASSEMBLYMEN 

E. W. EeRoy, Vice Chairman. 

S. F. Wehrwein, Secretary, 
J. C. Chapple, 
E. E. Haight, 

George T. Atwood. 



Submitted December 17, 1910 



REPORT 



OF THE 



Special Committee 



ON 



Education 



WISCONSIN LEGISLATURE 



COMMITTEE: 

SENATORS 

J. H. Stout, Chairman, 
W. R. Gaylord, 

C. L. Pearson. 

ASSEMBIvYMEN 

E. W. EeRoy, Vice Chairman, 

S. F. Wehrwrin, Secretary, 
J. C. Chappi<e, 
E. E. Haight, 

George T. Atwood. 



Submitted December 17, 1910 



0\ 



ry 



V 






CONTENTS. 



PAGE 

Resolutions on the Death of Senator James H. Stout v 

Organization of the Committee 1 

Joint resolution under which the Committee acted 1 

Public heai-ings 2 

Measures considered by the Committee 2 

Recommendations made 3 

Minority report 8 

Proposed bills 14 

A Bill, To create a commission to codify existing state laws 
concerning education and report on the condition of edu- 
cation in the state 14 

A Bill, To create section 386m of the statutes providing for 
admission to the state university of graduates from free 
high schools established and maintained in Wisconsin.... 16 
A Bill, To create section 702 — 1 to 702 — 13 of the statutes pro- 
viding for a county board of education and for the ap- 
pointment of a county superintendent of schools by such 

board 16 

A Bill, To amend sections 568 and 574 of the statutes relating 
respectively to the state school for the blind, and the state 

school for the deaf and dumb 20 

A Bill, To amend section 561 of the statutes, changing the 
name of the state board of control of Wisconsin reforma- 
tory, charitable and penal institutions to state board of 

control 21 

A Bill, To amend section 926—115 of the statutes, relating to 

the city superintendents and principals of schools 22 

A Bill, To amend section 926 — 117m of the statutes authoriz- 
ing principals of high schools in cities and villages to at- 
tend conventions called and held by the state superintend- 



ent 



23 



A B'll, To create section 926— 117n of the statutes, authorizing 
the state superintendent to caH conventions of boards of 
education in cities under the jurisdiction of city superin- 
tendents of schools 

A Bill, To amend section 378 of the Revised Statutes of 1898.. 24 



23 



CONTENTS. 



C. n PAGE 

bummary of arguments on the proposed bills 26 

The Educational Commission Bill \ 26 

The so-called Wehrwein Bill * gQ 

The County Board of Education Bill * .' 49 

Summary of amendments suggested 57 

Circular letters to county superintendents 55 

Summaries of letters received from county superintendents 59 
The Bill relating to the schools for the blind,' and deaf and 

•l^^i^ 68 

Business system of the State University inspected 75 






RESOLUTIONS ON THE DEATH 
OF SENATOR JAMES H. STOUT 

ADOPTED BY THE LEGISLATIVE COMMITTEE ON EDUCATION 



Whereas, On December S, 1910, at Menomonie, Wisconsin, James H. 
Stout was claimed by death, and 

Whereas, Mr. Stout, in both private and public life, for many years, 
took an active interest in improving the educational system of 
the state from the rural schools to the university, and 

Whekeas, He was constantly devising and trying out at his private 
expense, experimental movements in education, many of which 
have proved innovations of great practical value, and 

Whereas, From his own means he founded and endowed the Stout 
Institute at Menomonie, Wisconsin, an institution which is rec- 
ognized both in the United States and Europe as a model of its 
kind, and which wall constitute his enduring monument, be it 

Resolved, That we, the members of the Special Committee on Educa- 
tion of which the Hon. James H. Stout was Chairman, wish 
hereby to express our sincere appreciation of him as a friend, 
an educator and a public citizen, and further 

Resolved, That we feel that in his death we have lost a personal 
friend and the state an intelligent, generous, far-seeing states- 
man, known throughout the nation as a man who has shown a 
rare singleness of purpose in the benevolent efforts he has made 
for the betterment of his fellow men. 



L 



REPORT OF THE SPECIAL COMMITTEE ON 
EDUCATION 



To His Excellency, James O. Davidson, 
Governor of the State of Wisconsin, 

And the Legislature of the State of Wisconsin : 
The special committee of the Wisconsin Legislature, Session of 
1909, under authority of Joint Resolution No. 85, S., organized 
by the election of Senator J. H. Stout, chairman ; Assemblyman 
Edward \\'. Le Roy, vice-chairman, and Assemblyman Simon 
Wehrwein, secretary. 

The joint resolution was as follows: 

Joint Resolution. 

To provide for a joint committee of the legislature to investigate 
the subject of supervision and inspection of schools. 
Resolved by the Senate, the Assembly concurring, That bill 
No. 720, A., go over until the special session of the legislature to 
be held in January, 1910, and that the same be referred to a 
joint committee of three senators and five assemblymen to be ap- 
pointed in the same manner and under the same conditions as the 
other special committees ; that to the same committee be also re- 
ferred all other bills now before the legislature and relating to 
the supervision and inspection of schools ; that the same com- 
mittee is also empowered to investigate and report upon the ad- 
visability of reorganizing the educational system of the state 
and placing the state university, the normal schools, the high 
schools, and all other public schools, and the state superinten- 
dent's department under the general supervision of one board or 
commission ; and that the governor be requested to include these 
subjects in the call for a special session. 



2 Supervision and Inspection op Schools. 

In pursuance of the authority granted by the resolution, the 
committee held public hearings at Milwaukee, November 4th, 5th 
and 6th, and December 2nd, 3rd and 4th, 1909, and at Oshkosh,. 
February 4th and 5th, 1910. Wide publicity was given all the 
hearings. The subjects to be considered were prepared in the 
form of legjislative bills, and published beforehand, and ample 
opportunity was afforded all persons interested to appear and 
make arguments for and against the proposed measures. 

Measures Considered. 

The committee considered the following measures : 

1. A measure providing for the reorganization of the educa- 
tional system of the state, including the university, the normal 
schools, high schools, and all other publjic schools, under the 
supervision of one board or commission. 

2. A measure providing for a commission to codify existing 
state laws concerning education and to investigate and report on 
the educational system of the state, for the purpose of securing, 
the co-operation of the schools of the state. 

3. Bill No. 720. A., known as "The Wehrwein Bill." This bill 
recognizes the state superintendent as the legal head of the edu- 
cational system of the state and gives him the exclusive juris- 
diction iin regard to the official supervision of high schools. 

4. Bill No. 858, A. A measure providing for a county board 
of education, and for the appointment of a county superintendent 
by such board. 

5. A measure providing for a change in the name of the school 
for the blind at Delavan, and also providing that the state super- 
intendent of public iinstruction shall be ex-officio a member of 
the board of control and shall have a vote thereon upon all 
questions pertaihing to the educational policies of the school for 
the blind and the school for the deaf, including the election of 
superintendents. 

6. A measure providing for a change )in the name of the state 
board of control of reformatory, charitable and penal institu- 
tions to the -fiame "State Board of Control." 

7. A measure authorizing school boards in cities and villages 
to engage the principals of the high schools for a term of three 
years. 



Report of Special Legislative Committee. 3 

8. A measure authorizing principals of high schools in cities 
and villages to attend the annual convention of city superinten- 
dents as provided by law. 

10. A measure providing for the lengthening of the term of the 
members of the board of regents of the state university to six 
years. 

The numerous hearings of the committee were well attended 
by representatives of the various educational interests of the 
state. :\Iany educators of high standing appeared before the com- 
mittee at one time or another and made arguments either for or 
against some of the above measures. A typewritten stenographic 
report of the arguments has been filed in the state legislative 
reference library, where the public have access to it. 

The committee has included in this report a brief summary of 
the important arguments for and against some of the above 
measures, which summary is ba.sed on the general report filed in 
the reference librarv. 



Recommendatioxs. 

State Board of Education. 

In regard to the bill providing for a reorganization of the edu- 
cational system of the state and placing the state university, the 
normal schools, the high schools, and all other public schools, 
under the general supervision of one board or commission, the 
committee finds that so radical a change in the educational sys- 
tem is uncalled for at the present time. The extended arguments 
on this subject made before the committee are filed in the legis- 
lative reference library. 

A Commission. 

The hearings developed the fact that there are important ques- 
tions other than those considered bv the committee, demanding 
attention. All require study and deliberation. It is important 
that the educational system, as a whole, be considered also, and 
an endeavor be made to bring all parts of the school system into 
harmonious relationship so that there will be no conflict of in- 
terests, and no unnecessary duplication of work. 

A legislature in session, with its many and diverse interests, 
has not the time to devote to this great problem, and your com- 



i Supervision and Inspection of Schools. 

mittee therefore recommends that a bill be passed creating a com- 
missiion which shall codify existing state laws concerning edu- 
cation, shall prepare reports upon the condition of education m 
the state, and shall make recommendations to the end of the 
further development and increased efBciency of public education 
in Wisconsin. 

There is no subject that should engross the attention of the 
legislature more than education, and this commission, we believe, 
will materially aid the legislature in considering educational legis- 
lation. 

We therefore recommend that the bill for the creation of a 
commission, included in thlis report, be enacted into law, but that 
nothing in the above recommendation be construed to mean that 
action on any of the bills offered for passage by the committee 
shall be postponed by reason of their consideration of the pro- 
posed commission. These bills have been duly considered and 
sufficient data collected to enable the legislature to act intelligently 
on them. 

Bill N'o. '/20, A., Knozvn as "The Wehrivein Bill." 

This bill authorizes the State Superintendent of Public In- 
struction to have exclusive charge of the official inspection of 
the high schools of the state. It fixes in part the courses of study 
for the high schools of the state and requires local authorities to 
consult the state superintendent in making changes in the high 
school courses of study. 

In the opinion of the committee this is desirable. The Bill 
does not prevent the University or Normal schools or Colleges 
from having men in the field to give expert advice, in regard 
to the courses of study and methods of teaching, to- superinten- 
dents and principals of High Schools. The constitution recog- 
nizes the State Superintendent of Public Instruction as the legal 
head of the school system of the state. A division of authority 
with respect to high school courses of study and inspection tends 
to bring about confusion and uncertainty which is likely to be 
detrimental to the schools and is therefore objectionable. 

The committee therefore recommends that Bill No. 720 A be 
enacted into law. 



Report of Special Legislative Committee. 5 

County Board of Education. 

In the opinion of the Committee, the supervision of the country 
schools under the present system is woefully inadequate. The 
County Board of Education Bill will improve materially the su- 
pervision of rural schools. Under this proposed law there would 
be more supervision and better supervision of these schools. 
The proposed law would make it poss'ible for the County Super- 
intendent to perform his duties as the statutes now demand. 
Under such a. law we believe the County Board of Education 
would take an active interest in the educational need's of the 
county, and would introduce reforms calculated to bring the 
rural schools up to a high standard of efficiency. 

We therefore recommend that the bill providing for a County 
Board of Education be enacted into law. 



Schools for the Blind and Deaf. 

At the earnest recjuest of persons interested in the state school 
for the blind and the state school for the deaf, the administration 
of these institutions was g'iven consideration. The Committee 
is opposed to any radical change in the manner of administering 
the affairs of these two state schools, but finds that it would be 
advisable to include the State Superintendent of Public Instruc- 
tion on the governing board of both the school for the blind and 
the school for the deaf in so far as the matters of education and 
choice of superintendents are concerned. 

The Committee also finds that it would be advisable to change 
the name of the "Asylum for the Deaf" at Delevan to "The Wis- 
consin School for the Deaf." The latter name is more appro- 
priate. 

The Committee also finds that it would be advisable to change 
the name of "The State Board of Control of Charitable and Penal 
Institutions" to the name "The State Board of Control." This 
Board has under its supervision institutiibns which are not in the 
charitable or penal class. 

The Committee therefore recommends that bills w^iich pro- 
vide for these changes be enacted into law. 



6 Supervision and Inspection of Schools. 

Appointment of Principals of Schools for the term of Three 

Years. 

A law was passed by the Leg'.rslature of 1909 authorizing 
Boards of Education to engage a Superintendent of Schools for 
a period of from one to three years. The Committee is of the 
opinion that this is a wise law, and suggests that it be extended 
to include also principals of high schools. 

We therefore recommend that the bill providing for this change 
ie enactedi into law. 

Convention of Principals of High Schools. 

The law provides for an annual convention of city superinten- 
dents, to be called and held by the State Superintendent, for the 
purpose of consulting upon matters pertaining to the supervision 
and management of city schools. 

The Committee believes that principals of high schools in cities 
and villages should also be included in these conventions. 

We therefore recommend that the bill providing for this 
change be enacted into law. 

Convention of City Boards of Education. 

At present there is no provision in law for a meeting of the 
city Boards of Education of the state. ]\'Iuch benefit, it is be- 
lieved, would be derived from such a convention. 

The Committee therefore recommends that the bill providing 
for a state Convention of City School Boards be enacted into 
law. 

University Regents. 

In regard to the government of the State University by the 
Board of Regents, the Committee is of the opinion that a longer 
tenure of office for the members of this board will promote the 
efficiency of the board, and the Committee is also of the opinion 
that the members of the Board of Regents of both the State 
University and Normal Schools should receive a proper per diem 
compensation for their services, so as to permit the appointment 
of desirable persons whose pecuniary circumstances are such that 
they cannot now in justice to themselves serve on the Board. 



Report of Special Legislative Committee. 7 

The Committee therefore recommends that the bills embodying 
these provisions be enacted into law. 

Respectfully submitted. 

E. W. LeRoy, 
C. L. Pearson, 
■ S. F. Wehrvvein, 
E. E. Haight. 
J. C. Chapple, 
Geo. T. Atwood. 



Supervision and Inspection op Schools. 



MINORITY REPORT 

Of the Special Committee on Education Appointed by the iVis- 

consin Legislature, Session of 1909. 
Submitted December 17th, 1910, by Senator Winfield R. Gaylord. 

Your minority member of the Special Committee on Education 
greatly regrets that he cannot unite with the other members of the 
committee in signing a unanimous report. 

It is impossible for your minority member to recommend the 
passage of the Wehrwein bill, nor does it seem to him that the 
evidence adduced before the committee and spread upon its 
records justifies such a recommendation — ^this with all due respect 
to the members who sign the majority report. 

On the lace of it, the Wehrwein bill aims to authorize the 
state superintendent of public instruction to fix the courses of 
study in the high schools of the state, within certain prescribed 
limits. 

As a matter of fact, while doing that, it would have the effect 
also of placing in the hands of the official named, the power to 
control the entrance requirements of the university of the state 
of Wisconsin. 

Arguments for the bill, as presented in this majority report, 
place much emphasis upon "broad democracy." And then it is 
proposed to give additional power to an offiitial who already has 
a large measure of control over the state aid funds to be appor- 
tioned to the high schools. Your minority member is not favor- 
ably impressed v>'ith an appeal for "democracy" which aims to 
create a one-man power where that is least of all called for. 

This bill is proposed for the ostensible purpose of opening the 
uriiversity to a larger number of graduates of the high schools 
of the state. But seven-eights of the graduates of high schools 
in Wisconsin are now admitted to the state university without 
examination. 



Report of SpECLUi Legislative Committee. 9 

Xo case is shown within any recent period where any high 
school came to the university asking to have definite educative 
work in its course recognized by the university and was refused 
that recognition. 

High schools have asked to have definite educative work recog- 
nized. High school principals have asked that the entrance re- 
quirements of the university be modified. And these requests 
have been granted. 

There does not seem to be adequate reasoii why the state super- 
intendent of public instruction should have more power over the 
university requirements for entrance than he now has. He is 
now ex-ofificio a member of the university board of regents. He 
has ample opportunity to present his case to the university, in 
addition to his control over the high schools through the control 
of state aid. 

In view of the facts as related with reference to the willing- 
ness of the univers)ity to act in the matter of modifying entrance 
requirements, it would not seem to be such a difficult matter for 
that official to bring the board of regents to his way of thinking, 
if his views were reasonable. 

In spite of this favorable situation, there has arisen undoubted 
friction, in connection with the inspection of high schools by the 
imiversity. This friction should most certainly be removed. 

It is rather surprising that this friction has not arisen before, 
when it is remembered that there has been a tremendous develop- 
ment of the requirements upon educational institutions in recent 
years, owing to the changing .economic and social structure. 
Friction exists at many other points as well, and at almost every 
point where the educational institutions come into contact with 
the 'Common life — or fail to come into proper contact with the re- 
quirements of common life as it actually exists. 

There can be no doubt that between the common school and the 
high school there exists a practical difficulty similar to that which 
exists between the university and the high schools. This has not 
led to any open rupture, because of the administrative unity in 
the control of high schools and grade schools. 

All of these difficulties however go back to the fundamental 
cause, which exists in the fact that our educational institutions 
have not been developing so as' to keep pace with the changing 
and increasing requirements of modern industrial and social life. 



10 Supervision and Inspection of Schools. 

A few figures taken from the summary furnished by the report 
of the state superintendent of public instruction will illustrate 
the point intended to be made. 

The school census of 1907-1908 showed ; 



I 

No. of persons of school age (1-20 years), 775,547. Seating 
capacity of all school houses in the state, 575,917, indicating a 
shortage of about 200,000 in the seating capacity of the public 
schools, if we assume that all persons ought to be accommo- 
dated in the school houses of the state. That there is an actual 
shortage of school accommodations is notorious, notably so in 
cities, (one Miilwaukee high school with a seating capacity of 
600 pupils is now taking care ( ?) of about 900 pupils.) 

II 

No. of persons between 7 and 21 years, 369,191. No. of such per- 
sons attending public and private schools, 268,657 or over 100,000 
persons between the ages of 7 and 14 years ^yho did not attend 
school that year. The number of these persons amounted to 
27.2 per cent of the total number of persons of that age. This- 
sort of condition is calculated to produce a fair crop of illiterates 
in the great state of Wisconsin. 

Ill 

No. or persons between 1 and 20 years (school age), 775.547. 
No. of persons of school age enrolled in public schools, 464,240, 
showing 311,307 persons of school age, being 40.2 per cent of the- 
total number of such persons, not enrolled in the public schools. 
A reference to the Blue Book shows that the 1900 census re- 
ported about 149,255 persons between the ages of 15 to 19 years 
as not attending any school. These are the persons of high school 
age ; but even the state superintendent of public instruction will 
hardly claim that this condition is due to the "domination of the 
high schools by the imiversity" especially when the same census- 
showed 123,976 persons between the ages of 5 and 14 years not 
attendinsr school. 



Report of Special Legislative Committee. 11 

Here is where the real problem lies, and any readjustments in 
the mere internal arrangements of the educational machinery of 
the state which do not refer back to the fundamental facts can- 
not be of permanent value. 

Accordingly, your minority mcml^er most heartily concurs in 
that recommendation and bill reported by the majority members,, 
calling for the appointment of an educational commission which 
shall take up the whole question of the educational problems of 
the state, codify the existing laws, investigate the needs of the 
people of the state in this regard, and make recommendations 
for the recasting of forms and methods as well as courses of 
study throughout the state, with a view to securing not only a 
unity within the educational system, but also a more perfect cor- 
respondence between the educational system and the actual re- 
quirements of the common life. 

^Meanwhile, and until there can be made a canvass of the entire 
situation which shall furnish a suffi.-ient basis for thorough 
going legislative action, ^'Our minoritA- member is of the opinion 
that if the high schools are to be "dominated" by anybody, it 
were better to have their control at least qualified by the influence 
of what has proven to be one of the greatest and most democratic 
universities of the world, rather than to commit them to the 
power of any one man. 

It is also pertinent to call attention to the fact that friction 
might be expected to arise sooner or later — in a matter calling 
for expert knowledge — between an ofificial elected by popular 
vote under the present political conditions, and a body of educa- 
tional experts. 

With all due recognition of the qualities of the present superin- 
tendent af public instruction, it is fair to say that while the popu- 
lar vote may be trusted to select for administrative offices men of 
personal force, executive ability and honesty, that it is not the 
best way to select an expert who is to lay out the work of the 
great body of specially trained common school, high school and 
university teachers in this or any other state. Doubtless the 
average man will also agree that no one man, however selected, 
should be entrusted with a task of such magnitude. 

Yet the Wehrwein bill aims to complete a legal structure which 
would create just such a condition — a condition now already ex- 
istins: to a great extent. 



12 Supervision and Inspection op Schools. 

Another fact is of sufficient importance to call for special men- 
tion here, a fact relating to the present laws as to free text books. 

According to Section 430b of the statutes, the question of free 
text-books must be brought up at every annual meeting held 
within an original school district. The subject is therefore 
brought up regularly and every year, with a result that in a large 
percentage of the school districts free text books is the rule. 

Not so in the cities, where there is nO' method provided by law 
for bringing this question before the people. There is a. doubtful 
provision, authorizing school boards in cities to "purchase text- 
books for use in its schools, and loan or furnish them to pupils 
under such conditions or regulations as they may prescribe.'' 
But "free text books" are mentioned in other parts of the law 
and specifically provided for as above stated, and in other clauses 
of this same section (sec. 440a), making a distinction between 
^'free text-books" and text-books loaned or furnished otherwise 
for some consideration. 

Nevertheless, many cities have proceeded under this law, and 
have furnished "free text-books" to^ the pupils of their schools. 
There is no doubt that ultra-conservative citizens and tax payers 
will be found sooner or later who will attack the furnishing of 
free text books under this law, — ^for the saving of their own 
pocket-books. An injunction proceeding would undoubtedly be 
brought in the city of Milwaukee against such a proposition. 

Even should the right of school boards tO' furnish free text- 
books be proven to exist under this law, there still remains the 
curious anomaly that the people of a country district must vote 
on this propositon every year; while the people of the city have 
no possible means of voting on it at all. 

The Senate Committee on Education prepared and introduced 
Bill 611 S. to cover this point, and the bill passed the senate. 
However, in the closing rush of events it was non-concurred in 
the Assembly. It should have been referred to the Special Com- 
mittee on Education. 

In view of the difficulties (constitutional and otherwise) at- 
tending the labor of this committee, your minority member did 
not succeed in having the matter presented in the public hear- 
ings of the committee. And the majority members did not feel 
justified in reporting upon a matter which had not had a public 
hearinp-. 



Report of Specl\l Legislative Committee. 13. 

However, your minority member feels justified in calling the 
existing legal lack and legal danger to our schools, to the atten- 
tion of the legislature at this time, that it may be taken up and. 
considered in due course. 

With the exception of these two items, your minority member 
wishes to express his agreement with the substance of the majority 
report, and especially that part of it which calls for the appoint- 
ment of an Educational Commission. 

Respectfully submitted, 

WlXFIELD R. GaYLORD. 



14 Supervision and Inspection of Schools. 



PROPOSED BILLS 



A BILL 



To create a commission on education to investigate and report on 
the educational system of the state for the purpose of secur- 
ing co-operation of the several schools, to codify existing 
laws relating to education, and make an appropriation there- 
for. 

The people of the State of Wisconsin, represented in senate and 
assembly, do enact as foUozcs: 

Section 1. A commission is hereby created which shall be 
known as the commission on education, with the powers and 
duties herein prescribed. The commission shall be composed as 
follows: (a) the state superintendent of public instruction or a 
representative appointed by him; (b) The president of the Uni- 
versity of Wisconsin or a representative appointed by him; (c) 
the president of a state normal school to be elected by the board of 
regents of normal schools; (d) a city superintendent or principal 
of a free high school of the state to be elected by the association 
of city superintendents and supervising principals : (e) a county 
superintendent of the state to be elected by the association of 
county superintendents; ( f ) the chairman of the committee on 
education of the senate: (g) the chairman of the committee on 
education of the assembly. 

Section 2. The commission shall elect one of its members as 
chairman andi shall elecr as secretary a person not a member of 
the commission, and shall also employ a stenographer. A ma- 
jority of the commission shall constitute a ciuorum for the trans- 
action of business. The commission shall be paid their actual 



Report of Special Legislative Committee. 15 

-and neoessary expenses including traveling expenses in the neces- 
sary performance of their duties, but shall receive no additional 
compensation. The secretary and stenographer shall devote their 
entire time to the work of the commission and shall receive there- 
for such compensation as the commission shall determine. The 
necessary postage and stationery for the official work of the com- 
mission shall be furnished to the commission by the superintend- 
ent of pubHc property. 

Section 3. 1 he commission shall codify the laws of the state 
relating to education; shall investigate the condition of education 
in the state and report thereon to the governor and shall include 
recommendations designed to secure further development and in- 
creased efficiency of education and for the purpose of securing 
complete co-operation of the university, normal schools secondary 
schools, and the elementary schools, including the rural schools. 
The commission shall draft a bill or bills embodying the recom- 
mendations made and transmit the' same to the governor with its 
final report. The commission shall present a preliminary report 
to the governor before the regular legislative session of 1913 and 
shall present a final report to the governor before the legislative 
session of 1915. The existence of the commission shall termin- 
ate upon the submission by it of its final report. 

Section 4. For the purpose of carrying out the provisions of 
this act there is appropriated from any money in the treasury not 
otherwise appropriated the sum of four thousand dollars for the 
fiscal year of 1911-1912 and the sum of four thousand dollars 
for the fiscal year of 1913-1914, and any of the money thus ap- 
propriated not used within the fiscal years mentioned shall be 
available to the commission for the purposes of this act, until 
its fiscal report is submitted to the governor. 

Section 5. This act shall take effect and be in force from and 
after its passage and publication. 



16 Supervision and Inspection op Schools. 

A BILL 

To create section 386m of the statutes, providing for admission 
to the state university of graduates from free high schools 
estabhshed and maintained in Wisconsin. 

The people of the state of Wisconsin, represented in senate and 
assembly, do enact as follows : 

Section 1. Any person having satisfactorily completed a four 
year course of study in any free high school in the state of Wis- 
consin whose course of study shall have been legally adopted 
by the free high school board and approved by the state superin- 
tendent of public instruction and shall have been administered 
in such manner as to fully meet the requirements of the law^ 
shall be admitted without entrance examination to the state .uni- 
versity as a student upon the filing with the registrar of the uni- 
versity a certificate of graduation, good moral character and abil- 
ity as a student, and a list of his final standings in the studies of 
the course, signed by the principal of such school ; provided that 
the course of study pursued shall have included two years of 
mathematics, two years of English, two years of history, two 
years of science and that the standings shall be of sufficiently 
high rank to indicate good work in the high school. 

Section 2. This act shall take effect and be in force from and 
after its passage and publication. 



A BILL 



To create section 702-1 to 702-13 of the statutes, providing for 
a county board of education and for the appointment of a 
county superintendent of such board. 

The people of the state of Wisconsin, represented in senate and 
assembly, do enact as folloivs : 

Section 1. There are added to the statutes thirteen new sec- 
tions to read : 

Section 702-1. There is hereby created a board of education 
for each county in the state of Wisconsin, to be known as the 
county board of education. Said board shall consist of five mem- 



Report of Special Legislative Committee. 17 

bers who shall be qualified voters of the county and shall be 
chosen as hereinafter provided. A majority of the board shall 
constitute a quorum. 

Section 702-2. At the regular spring election to be held on 
the first Tuesday of April, 1913, there shall be elected in each 
county in the state of Wisconsin five members of such county 
board of education. At the first meeting after the said election 
the members of such board shall cast lots to determine who shall 
serve for a term of one year, who shall serve for a term of two 
years, three, four and five years respectively. Except as to those 
members whose first term shall be fixed by lot as aforesaid at 
one, two, three and four years, the term of office of each mem- 
ber of such board shall be five years, and an election shall be held 
as provided in this act every year at the time of the regular spring 
election. The electors of any city having a board of education, 
superintendent of schools or other board or officers vested with 
power to examine and license teachers and supervise and manage 
the schools therein shall have no voice in electing the members 
of such county board of education. 

Section 702-3. The candidates to be voted for as members of 
the county board of education shall be nominated by nomination 
paper or nomination papers as provided in subdivision 3 of sec- 
tion 30 of the statutes of 1898 and acts amendatory thereof, but 
no person shall be deemed a candidate unless his nomination pa- 
per or papers are signed by at least one per cent, of the whole 
number of votes cast in the county or district at the last general 
election preceding such nomination from at least three precincts 
in the county or district from which such member is to be elected 
and his nomination papers filed as provided in section 32 of the 
statutes of 1898 and acts amendatory thereof. 

Section 702-4. The members of the county board of education 
shall be elected at the regular spring election. Separate ballots 
for the election of such members shall be provided by the county 
clerk of each county at the expense of the county, and the separate- 
ballot boxes shall be provided by the proper election officials. 
The candidate or candidates receiving the highest number of 
votes shall be declared elected. No ballot bearing the name of 
any candidate for member of the county board of education shall 
have upon it any word or thing designating said candidate as a. 
party candidate. 
2 



18 Supervision and Inspection of Schools. 

Section 702-5. Any vacancies occurring in the county board 
of education shall be filled by the board. The members so elected 
to fill such vacancies shall serve only until the next regular elec- 
tion, at which time the vacancies shall be filled for the unexpired 
term in the same manner as is provided herein for the election of 
the members of such board for the full term. 

Section 702-6. On the first Tuesday in May after the election 
in April, 1913, and annually thereafter, such board shall meet at 
the county seat and organize by electing one of the members as 
president and one as secretary, such officers to serve for one year 
OT until their successors shall be chosen and cjualified. 

Section 702-7. The regular meetings of the county board of 
education shall be held on the first Tuesday in May and on the 
last Friday in October of each year. Special meetings may be 
called by the president of said board upon three days' written 
notice to the members thereof. All meetings shall be held at the 
county seat, except by the unanimous consent of all the members 
O'f the board, then meetings shall be held elsewhere in the county. 
The members of the county board of education shall be allowed 
and paid by the county, the per diem and mileage as provided in 
section 695 of the statutes of 1898 and acts amendatory thereof, 
but no member oi said board shall receive compensation for his 
services as member of such board for more than ten days in any 
one year. 

Section 702-8. At the meeting to be held on the first Tuesday 
in May, 1913, and biennially thereafter, the county board of edu- 
cation shall elect a county superintendent of schools, or county 
superintendents in case the county contains two superintendent 
districts, who shall hold office for two years and until his suc- 
cessor is elected and qualified, beginning on the first Monday of 
July next following such election. Vacancies in the office of 
county superintendent shall be filled by the county board of edu- 
cation at a regular or special meeting thereof for the unexpired 
term. Said superintendent shall have the powers and perform 
the duties now provided for in the law^s of the state of Wisconsin 
applying to the county superintendent of schools, and which do 
not conflict with the provisions of this act. It shall be the duty 
of the county superintendent so elected to be present at all meet- 
ings of such board unless excused by the board, and tO' act as an 
advisory member of such board. 

Section 702-9. Such board may appoint such assistants to be 



Report of Special Legislative Committee. 19 

nominated by the county superintendent, as it may deem neces- 
sary and shall prescribe the term of office, and, with the advice 
of the county superintendent shall fix the duties of such assist- 
ants. Su'ch assistants shall have the qualifications now provided 
by law for depirty county superintendents. The board shall also 
fix the salaries of the county superintendent of schools and his 
assistants, which salary shall not be less than the minimum fixed 
by law. 

Section 702—10. The count}- board of education shall appoint, 
upon the nomination of the county superintendent, a board of 
examiners for the country school diplomas, prescribe their duties, 
fix their compensation, and may limit the number of days in any 
year for which any member may receive compensation, and ma}' 
employ a clerk for the superintendent upon the recommendation 
of the superintendent and provide compensation for the same. 

Section 702-11. The county board of education shall audit all 
bills of the coimty superintendent and his assistants authorized 
by the county board of education, and shall allow to such super- 
intendent and his assistants such traveling expenses and expenses 
of postage, printing and office supplies as shall be necessarily in- 
curred in the discharge of their duties, unless these expenses are 
otherwise provided for, and shall also audit and allow to the 
members of the board of examiners for country school diplomas 
a per diem of three dollars, and mileage at the rate of six cents 
per mile for travel necessarily performed in the discharge of their 
duties. 

Section 702-12. Each member of the county board of educa- 
tion shall devote not less than two days nor more than five da}'3 
in each year to visiting and inspecting country schools, and each 
member shall attend at least one of the annual meetings of the 
school board conventions of the county. 

Section 702-13. The county board of education shall, at its 
meeting to be held on the last Friday in October of each year, 
determine the amoimt of money which will be necessary for the 
purpose of carrying out the provisions of this act for the ensuing 
year. On or before the first ]\Ionday of November in each year, 
the county board of education shall report the total amount re- 
quired to the county clerk, who shall report the same to the county 
board of supervisors at its aijnual meeting in November, and such 
amount shall be levied in the county tax and collected as other 
taxes, and shall be set aside by the county treasurer as a separate 



20 Supervision and Inspection op Schools. 

fund to be paid out by him on the last day of each month upon, 
the orders of the county board of education, drawn by the secre- 
tary and countersigned by the president. 

Section 2. All acts and parts of acts in conflict with the pro- 
visions of this act are repealed. 

Section 3. This act shall take effect and be in force from and' 
after its passage and publication. 



A BILL 



To amend sections 568 and 574 of the statutes, relating respec- 
tively to the state school for the blind, and to- the state school, 
for the deaf and dumb. 

The people of the state of Wisconsin, represented in senate and 
assembly, do enact as follozvs: 

Section 1. Section 568 of the statutes is amended to read; 

Section 568. 1. The object of the school for the education of 
the blind, established in Janesville, shall be to aft"ord to that un- 
fortunate class, so far as possible, enlightened and practical edu- 
cation which may aid them to obtain the means of subsistence, 
discharge the duties of citizens, and secure all the happiness 
which they are capable of attaining. The general supervision 
and government of said school is vested in the state board of 
control. 

2. For the purpose of specific superznsion of the educational 
department of said school the state superintendent of public in- 
struction shall be ex-ofUcio a member of the board of control and 
shall have a vote upon all questions pertaining to the educational 
policies of the school, including the election of the superintendent. 

Section 2. Section 574 of the statutes is amended to read: 

Section 574. 1. The object of the school for the education oi" 
the deaf and dumb heretofore established in Delavan shall be to 
afford to that unfortunate class so far as possible enlightened and 
practical education that may aid them to obtain the means of 
subsistence, discharge the duties of citizens, and secure all the 
happiness which they are capable of attaining. Said school at 
Delavan shall be known as the Wisconsin School for the Deaf^ 



Report of Special Legislative Committee. 21 

The general supervision and government of said school is vested 
in the state board of control. 

2. For flic purpose of specific supervision of the educational 
■department of said school, the state superintenaent of public in- 
struction shall be ex-oiTicio a memberof the board of control and 
shall have a vote on all questions pertaining to the educational 
policies of the school, including the election of the superintendent. 

Section 3. This act shall take effect and be in force from and 
after its passage and publication. 



A BILL 



To amend section 561 of the statutes, changing the name of the 
state board of control of Wisconsin reformatory, charitable 
and penal institutions to the state board of control. 

The people of the state of IViscoiisin, represented in senate and 
assembly, do enact as follozvss 

Section 1. Section 561 of the statutes is amended to read : 
Section 561. To secure the just, humane and economical ad- 
ministration of the laws concerning the reformatory, charitable 
and penal institutions of this state there is hereby constituted a 
board of five members which shall be known as the state board of 
■control. Said board shall have and exercise the powers and per- 
form the duties prescribed by law, and its members shall devote 
their entire time and attention to the discharge of such duties. 
The board shall be a body corporate under and by said name, and 
in addition to the powers expressly conferred shall have all such 
as may be necessary to the full and complete performance thereof. 
A majority of the members shall be a quorum for the transaction 
of business. 

Section 2. This act shall take effect and be in force from and 
■after its passage and publication. 



22. Supervision and Inspection op Schools. 



A BILL 

To amend section 926-115 of the statutes, relating to city super- 
intendents and principals of schools. 

The people of the state of Jllscoiisiii, represented in soiate and 
assembly, do enact as folioics: 

Section 1. Section 926-115 of the statutes is amended to read : 
Section 926-115. In all cities and villages, except cities of the 
first class, there may be elected by the board of education or the 
board of school commissioners, a city superintendent of schools- 
or a principal of the liigh school for a term not to exceed three, 
years. The duties of such city superintendent shall be. 

1. To examine and license teachers according tO' the statutes. 

2. To supervise the administration of the courses of study. 

3. To have general supervision of the professional work of the 
schools of the city, including the holding of teachers' meetings- 
and the promotion of pupils. 

4. To make from time to time a written report to the board of 
education or board of school commissioners, as the case may be,, 
embodying such recommendations relative to the employment of 
teachers, adoption of text books, changes in the course of study,, 
enforcement of discipline, and such other matters as said super- 
intendent may deem for the best interests and welfare of the city 
schools. 

5. To make such other reports and to perform such other duties 
as the board of education or board of school commissioners may 
direct and which are not in conflict with the provisions of this- 
act. The board of education or the board of school commis- 
sioners shall determine the annual compensation to- be paid said' 
city superintendent of public schools out of the school funds of 
the city. 

Section 2. This act shall take effect and be in force from and 
after its passage and publication. 



Report of SpECiiLL Legislative Committee. 2'S 

A BILL 

To amend section iJ26-117m of the statute authorizing principals 
of high schools in cities and villages to attend conventions 
called and held by the state superintendent. 

The people of the state of Wisconsin, represented in senate and 
assembly, do enact as folloivs : 

Section 1. Section 926-117m of the statutes, is amended to 
read : Section 926-117m. It shall be the duty of each city sup- 
erintendent and principal of the high school in cities and villages 
to attend annually one convention called and held by 
the state superintendent for the purpose of consultation 
upon matters pertaining to the supei^vision and manage- 
ment of their schools. Each superintendent and principal 
shall be reimbursed his actual and necessary expenses incurred 
for travel, board and lodging because of attendance upon such 
convention, such bills to be audited and allowed by the boards of 
edtication upon presentation of an itemized statement of expense 
accompanied by a certificate of attendance signed by the state 
superintendent. 

Section 2. This act shall take effect and be in force from and 
after its passage and publication. 



A BILL 



To create section 926-]17n of the statutes, authorizing the state 
superintendent to call conventions of boards of education in 
cities under the jurisdiction of city superintendents of schools. 

The people of the state of JJlsconsiii, represented in senate and 
assembly, do enact as follozcs: 

There is hereby added to the statutes a section to read : Sec- 
tion 926-117n. , It shall be the privilege of members 
of boards of education in cities under the jurisdiction of city 
superintendents of schools to attend annually at least one con- 
vention called and held by the state superintendent for the pur- 
pose of consultation upon matters pertaining to the supervision 



24 Supervision and Inspection of Schools. 

and management of city schools and administration of courses of 
study. Each member of the board of education in a city under 
the jurisdiction of a city superintendent who shall attend such 
convention shall be reimbursed his actual and necessary expenses 
incurred for travel and board and lodging because of attendance 
upon such convention, such bills to be audited and allowed by the 
board of education upon the presentation thereto of an itemized 
statement of expenses, accompanied by a certificate of atten- 
dance signed by the state superintendent. 

Section 2. The state superintendent may determine the place 
where the convention shall be held and the number of days each 
convention shall be in session, provided that no such convention 
shall be held for more than two consecutive days. ^ 

Section 3. This act shall take effect and be in force from 
and after its passage and publication. 



A BILL 



To amend Section 378 of the Revised Statutes of 1898. 

The people of the state of Wisconsin, represented in senate and 
assembly, do enact as folloivs: 

Section 1. Section 378 of the statutes of 1898 is amended 
to read : "Section 378. The government of the university shall 
be vested in a board of regents, to consist of one member from 
each congressional district and two from the state at large to be 
appointed by the governor; the state superintendent and the 
president of the university shall be ex-officio members of said 
board ; said president shall be a member of all the standing com- 
mittees of the board, but shall have the right to vote only in case 
of a tie. The term of office of the appointed regents shall be 
six years, except as below specified, from the first Monday in 
February in the year in which they are appointed unless sooner 
removed by the governor ; but appointments to fill vacancies 
before the expiration of the term shall be for the residue of the 
term only. Two of. the appointments of the six regents whose 
terms expire in 1911 shall be for a period of three years, two 
for z, period of four years, and two for a period of five years, 
that is, to the years 1914, 1915, 1916, respectively; the appoint- 



Report of Special Legislative Committee. 25 

ments of the three regents whose terms expire in 1912 shall be 
for a period of five years, that is, to the year 1917 ; two of the 
appointments of the four regents whose terms expire in 1913 
shall be for a period of five years, and two for a period of six 
years, that is, to the years 1918 and 1919, respectively ; there- 
after as the various terms expire all appointments shall be for 
a period of six years." 

Section 2. This act shall take effect and be in force from and 
after its passage and publication. 

Secton 392 of the statutes of 1898 is amended to read : 
Section 392. In lieu of expenses the regents shall each re- 
ceive ten dollars for each day that he is actually and necessarily 
engaged in the performance of official duties, not exceeding thirty 
days in any one year, and mileage at the rate of two cents per 
mile by the nearest traveled and practicable routes in going from 
his home to ]\Iadison and returing from Aladison to his home 
when on official business ; accounts for such mileage and per 
diem, duly authenticated, shall be audited by the board and 
be paid on their order by the treasurer out of the university fund 
income. No regent shall receive any pay, mileage or per diem 
except as above prescribed. 



26 Supervision and Inspection of Schools. 



SUMMARY OF ARGUMENTS ON PROPOSED 

BILLS 



NOTE: 

References made in connection with the summaries are to the 
vohimes and pages of the complete stenographic reports of the 
arguments which are filed in the legislative reference library. 

THE EDUCATIONAL COMMISSION BILL. 
Summary of Arguments in Favor. 

I. Such a ccnimission is needed for the study of educational 
questions and the collection of data. 

In this state at the present time, a larg^ number of educational 
problems need investigating. Among these are the following: 
Distribution of state aid to schools; Teachers retirement fund; 
Mihimum salary law ; Professional training of teachers ; Method 
of determining the amount of the tax levy for schools in cities ; 
The relation between high schools and the university. 
Vol. I. pp. 157-169. 

At the present time we have not a sufficient amount of infor- 
mation to be able to wisely decide the various questions that 
need to be settled. This bill seeks to establish a provisional 
commission which will study the whole educational situation, 
and endeavor to bring all the dfferent parts of the school system 
into harmonious relationship, where there will be no conflict of 
interests and no unnecessary duplication of work. At present 
there are too many different statements of the same facts to 
warrant any particular legislation. There are many things about 
the educational situation in the state that we do not know and 
that we ought to know before we can act intelligentI3^ 
Vol. III. pp. 732-735. 



Report of Special Legislative Committee. 27 

Throughout this country we have entirely too- much hasty 
and ill advised legislation. Professor Elliot states that he has 
just completed an analysis of over one thousand educational 
measures passed in the various states the past winter, and that the 
schools wou'd be just as well off if half of them had not been 
passed. 

\'ol. III. pp. 748-749. 

As the state is growing more complex and as educational re- 
forms are being urged on every hand, there should be an expert 
body that in a purely expert way gathers information and sub- 
mits it to the inspection of those whose business it is to construct 
laws. This defers action for the present, but any commission 
which is established for the purpose of hurrying up legislation 
is doomed to failure. 

Vol. III. pp. 759-961 : 774-779. 

II. It will be of great advantage to have the various educa- 
tional interests brought together on a board where the matters 
in dispute can be discussed. This commission is at liberty to 
take up the whole educational system, and is therefore superior 
to the proposed high school commission. We haVe two primary 
-needs or problems in education. One is the rural school prob- 
lem ; the other is the relation of high schools to higher institu- 
tions. This commission can study directly these two primary 
needs. 

\'ol. III. pp. 761-764. 

Industrial education in all its phases should be represented on 
such commission. A new type of agricultural high school is 
growing up. All phases of industrial education are coming 
to be a part of our public school education. It may not be 
possible to have all the educational interests represented but 
men of large vision and sympathy should be appointed, and 
then all interests would have fair consideration before the com- 
mittee. 

Vol. III. pp. 746-747: 752-759. 

It would be of advantage to have included in this commission 
the chairman of the committee on education in the assembly and 
in the senate. This would put a representation of laymen on 



28 Supervision and Inspection op Schools. 

the committee, and this is desirable as the control of education 
will always rest partly with laymen. The report of the com- 
mission would,, when it was prepared, be more likely to be en- 
acted into law. 

Vol. III. pp. 737-743. 

III. The experience of other states with educational com- 
missions has shown that they are desirable. 

Some years ago- the governor of Indiana appointed such a 
commission. It was in session one year, studied conditions and 
needs and made recommendations tO' the governor which became 
the basis of legislation. It made seven recommendations all of 
which were enacted into law, and some of the most helpful 
educational laws the state has ever had. Illinois, Iowa, Penn- 
sylvania, Washington, Connecticut, Kentucky, have had com- 
missions of this kind in the past two- or three years. The Ill- 
inois commission especially has collected much A^aluable infor- 
mation on educational questions. 

Vol. I. pp. 100-102; 112 ; 157-169. Vol. III. pp. 737-743. 

IV. The expense of these educational commissions has not 
been great. The appropriations have been as follows : Wash- 
ington, $5,000; Iowa, $3,000; Kentucky, $1,200; Illinois, $20,000. 
The commission should have a secretary who is more or less of 
an expert. The expenses of the members of the commiis&ioii 
should be paid. 

Vol. III. pp. 749-751. 

The following persons favored the passage of this bill. 
Fassett A. Cotton, President La Crosse Normal School. 
Vol. III. pp. 100-102. 

C. E. Elliot, Professor of Education, University of Wisconsino. 
Vol. III. pp. 732-759; 773-774. 

J. A. H. Keith, President Oshkosh Normal School. 
Vol. I. pp. 100-102. 

Charles M'cKenny, President Milwaukee Normal School. 
Vol III. pp. 879-884. 



Report of Special Legislati\t: Committee. 29 

yi. y. O'Sliea, Professor of Education, University of Wiscon- 
sin. 

A'ol. III. pp. 759-773. 

H. S. Yoiiker, Supervisor of Practice, Oshkosh Xormal 
School. 

Vol. I. pp. 157-169. 



A Summary of Arguments Opposing the Passage of this 

Bill. 

1. This commission is unnecessary. 

The educational conditions in the state are pretty well under- 
stood at the present time. The material is available in the office 
of the state superintendent of schools. Detailed information 
on all subjects may not be available but the general conditions 
are known. For example it is known in the department that a 
good many school districts are not taxing themselves for edu- 
cational purposes, though it is not known just how many, 
^'ol. III. pp. 780-787. 

Hoil. C. P. Gary, State Superintendent of Schools, opposed 
the passage of this bill. 



30 Supervision and Inspection of Schools. 



THE WEHRWEIN BILL. 

Summary of Arguments Favoring the Passage of the 
Wehrwein Bill. 

I 

' This bill will enable' the state superintendent to perform the- 
duties required of him by law much more effectively than he can 
at present. 

1. The state superintendent is the legal head of the state 
school system. 

The state superintendent of schools, according- to the constitu- 
tion of the state is the superintendent of public instruction in 
the state. The law makes it his duty to organize high schools,, 
and to inspect high schools, or have an inspector for that pur- 
pose, to pass judgment upon these schools as to their efficiency; 
to withhold state money in case they do not meet reasonable re- 
quirements. It also makes it the duty of the state superinten- 
dent to approve all free high school courses of study. Neither 
the state legislature nor the people of the state should permit 
these duties to be interfered with by an institution, like the 
State L'niversity, which has no authority under the law to do 
these things. 

\'ol. I. pp. 214, 235, 375, Vol. III. 792-798. 

2. The official inspection of high schools should be left ex- 
clusively with the state superintendent of schools, as this bill 
provides. 

The state superintendent is a disinterested party. If any 
community or any principal has any modifications in the course 
of study which should be made, the state superintendent should 
insist that the matter be carefully considered, and that the pro- 
posed changes have real merit. He ought to encourage local 
and individual initiative, yet he should protect the high schools 
from half-baked courses. The state superintendent, the educa- 
tional representative of the state should see to it that the high 
schools do not go off into uneducative lines, lines which were- 
perhaps tried out years ago and found to be failures. In the 



Report op Special Legislative Committee. 31 

last analysis he should stand as a kind of check on the unwise 
expenditures of puhlic money and in the undue duplication of 
work and studies. The high school is hound to grow out in 
several directions in the community in a manner analogous to 
the way in which the imiversity has grown in the state. 

\'ol. II. pp. 567-r)68. 

Vol. II. pp. 462-465. 

Vol. III. pp. 813-815; 

At present the trouhle with the inspection of high schools in 
Wisconsin is that it is a double headed system. The inspection 
by the university and also by the state superintendent may, and 
often does, lead to clashing and confusion. Inspectors may, 
and often do, differ as to what a high school should do. This 
makes it impossible for the state superintendent to effectively 
perform the duties required of him by law as regards the in- 
spection and control of high schools. 

}iIore inspectors are needed in the state superintendent's 
office. With one inspector it is impossible to have him visit 
all the high schools even once in two years, if he is also to do 
anything to keep himself informed as to what are the best edu- 
cational features of other states. It would be more logical and 
eff'ective for the state to provide more inspectors under the con- 
trol of the state superintendent. It would be no more expensive 
than it is to take the time of university professors to do this 
work. The state superintendent is at liberty to call to his aid 
whomsoever he may desire to inspect these schools. A provision 
could be inserted in this bill allowing the state superintendent 
to choose one inspector from the university faculty. 

A'ol. I. pp. 222-223. 360. 375. 

\'ol. II. pp. 458-459. 

Vol. III. pp. 794-795. 798-799 ; 802-805 ; 817. 

The University of Wisconsin dominates the high schools of 
this state under our present system of high school inspection and 
control, and this domination is injurious to the best interests of 
the high schools. 

This has come about in the following manner : The university 
has said to the high school principals 'Tf your pupils meet cer- 
tain requirements in the way of subject matter, studies pursued, 
grades of teaching done, then they can come and have the oppor- 



32 Supervision and Inspection of Schools. 

tunities of the university without examination." Every high 
school man, anxious to give his school a standing in the state, 
and to have something tangible to present locally of his own 
efficiency has endeavored to get his school on the accredited list 
of the university. This means that he must shape his course 
so that it will meet the university entrance requirements. Sup- 
pose a question comes up changing the work of the high school 
to better meet the needs of the communit}^ and the superinten- 
dent goes ahead and makes changes that are not approved by 
the university. The school will be taken off the accredited list. 
The community will at once condemn the superintendent and 
credit any explanations he may make as an attempt to cover up 
his own incompetence. A school man does not dare to let his 
school get off the university accredited list. The university look- 
ing at what it considers advantageous for boys and girls to have 
on coming into the University has set up a standard which has 
dominated the development of courses of instruction in the high 
schools of this state and of every state in the middle west. The 
condition where an outside body can come in and nullify orders 
given by the one who has the legal right to give orders, as in the 
case when the university counteracts the suggestions of the state 
superintendent would not be tolerated in a manufacturing estab- 
lishment for an instant. 

Yol II. pp. 460, 561-564 ; Vol. Ill, pp. 802-812. 

III. 

The present relation of the universit}' to the high schools leads 
to an undesirable domination of educational thought and discus- 
sion by the university. 

Rarely do we hear a discussion of a question aft'ecting the 
high schools, what they should do, what the educational values 
are which are involved in the high school work, where the dis- 
cussion is unhampered. Some one is sure to ask, "What about 
the University of Wisconsin?" That ends the whole discussion. 
Everybody looks to see what the university says. Of the school 
men who appeared before the icommittee in opposition to this bill 
there is not one who does not look to it, and will continue to 
look to it that his school is put in shape to stand well at the uni- 
versity. This domination causes high school teachers to look 
to the university for light and for direction instead of looking 



Eepobt of Special Legislative Committee. 33 

to the needs of the local community. The high schools must 
demonstrate their value to the boys and girls who do not go to 
college. Other states have had this same experience. 

Vol I. pp. 237-239. 

\'ol. II, pp. 470^72. 

Vol. III. pp. 810-813. 



IV. 

This bill provides a plan for high school control that is in 
accordance with the principles of a democracy. 

1. We live in a democracy, and in a democracy the doors 
of opportunity must be kept open to every boy and girl. In 
this state we have, under this principle, made it possible for every 
boy and girl to attend a public school, and we have even made 
it conpulsory that they should do so. Further than that we have 
made it possible for every boy and girl to attend a public high 
school. If there is not one in the township in which the student 
lives, he may go to a high school and the district from which he 
comes must pay the tuition. 

The Wehrwein Bill says in principle, that the door of oppor- 
tunity which the University ofifers shall also be opened to every 
boy and girl who wishes to avail himself of the opportunities 
of it, provided there is evidence of being able to profit by the 
opportunities which the university afifords. 

Under the present plan of accrediting high schools the small 
high schools have no showing at all except as they get into the 
university by the back door. Some of the verv' best product of 
the whole state of Wisconsin grows up in the backwoods country. 
They go to the little high schools. Those who stay through and 
get the benefit of all the work there, are as a rule better maiterial, 
boy for boy and girl for girl, than the graduates of the high 
schools in the city. They may not be better trained but they have 
better stuff in them because they have had the kind of environ- 
ment that brings out stronger characters. They have the per- 
sistency that meets an intellectual necessity. In the cities on the 
other hand large numbers of students go to high schools because 
there is nothing else for them to do or because it is the custom 
for young people to go to the high school. The environment is not 
as favorable to the development of character as it is the case of 
3 



34 Supervision and Inspection op Schools. 

the students from the small high schools, who are now discrimin- 
ated against in the matter of University entrance requirements. 
Vol. I. pp. 227-228; 357-359. ■ 

2. This bill provides the most desirable method of determin- 
ing what the courses of instruction in these high schools shall be. 

This bill states that with legislative sanction the state super- 
intendent shall determine what the courses of instruction in these 
high schools shall be. Only five or ten percent of the graduates 
of these high schools go tO' the university. On the broad grounds 
of democracy it is better for the legislature to faice this question 
squarely and after study decide what the courses of instruction in 
all these high schools shall be rather than that the university 
shall be permitted to decide this question. If the subjects named 
in the Wehrwein Bill as a course of instruction in the high school 
are not the best subjects the legislature should modify them. 
Vol. I. pp. 357-359. 

The state is interested in these high schools and it is therefore 
justifiable for the state' to assume some control over them by 
fixing part of the course of study as is done in the Wehrwein Bill. 
The requirement ol two years in English, two years in science, 
two years of mathematics, two years of history is very general. 
It serves to fix a backbone for the course and at the same time 
part of the course is left open. It is intended that these high 
schools shall have manual training, domestic science, foreign lan- 
guages and within reasonable bounds anything that the local 
authorities may wish to put in. The state superintendent stands 
as a bar to the high schools doing anything unwise. He may 
make mistakes but his is an elective office and close to the people. 
A state superintendent would be very .unlikely to' stand up against 
the consensus of opinion of the superintendents and principals of 
the state. 

Vol. II. pp. 230-232. 



V. 

The present relations between the high schools and the univer- 
sity tend to foster in the high schools too high a standard of intel- 
lectual attainment. 

1. There are many people in this country who could never 



Report op Special Legislative Committee. 35 

have gone to the nni^■e^s^ty at all, because on the side of intellec- 
tual attainment, they could not meet its requirements, but with- 
out assistance of the University they have developed into strong 
and efficient members of society. This element of the university 
by which they "con" out a lot of people who can not meet their 
requirements reacts on the high schools, and the high schools, 
too under the present situation tend to "con" out those who do 
not have this measure of intellectual ability. There are hundreds 
of boys and girls in Wisconsin who cannot measure up to that 
degree of intellectual ability demanded by the University, who 
nevertheless, would have been greatly benefited by attendance 
at the high schools. A more diversified set of courses in the high 
school would mean a broader call to these different kinds of 
capacity in boys and girls, other than this purely intellectual ele- 
ment. This would redound to the great advantage of our com- 
monwealth. 

Vol. T. p. 361. 

2. The inspection of a h'igh school by a specialist from the 
University tends to foster in the high schools the kind of teach- 
ing done by the speciaHst in the university instead of the kind 
of teaching which is most beneficial to the boys and girls of high 
school age. 

For example, a specialist in botany will visit the high school. 
He will suggest changes in the teaching of botany, making it 
university botany according to his special standard. All this has 
a narrowing endency. The man w^ho passes upon the high school 
ought to be a man of broad sympathy and wide scholarship. He 
should be a specialist in common sense as well. The general ten- 
dency of specialization is to crowd out this element of a man's 
character. 

\'ol. I. pp. 374-375. 



VI. 

The tendency of the present domination of high schools by the 
university is to require a high school student to choose too early 
in life whether or not he will attend the university. 

The colleges and universities would say to the boy or girl who 
enters a high school in Wisconsin, or any where else in the 



86 Supervision and Inspection op Schools. 

United States, "Now, young man, what are you going to do? 
Are you going to college, or are you not? Now settle that ques- 
tion and when you have settled it we will put you on the right 
course." Eveiy boy and every girl lis face to face with this prop- 
osition where colleges and universities dominate the situation. 
This is wrong; high school pupils need to have the opportunity 
to wait until they have finished their high school course before 
they shall make their choice as to what they shall do. If they 
decided when they first entered the high school they would not 
go on and go to the university, and consequently did not take a 
course that led in that direction, they are blocked from going 
on according to the university standards. With the present size 
of the university and the variety of courses offered it is entirely 
unnecessary to make this demand. 
Vol. I. pp. 270-271. 



VII. 

The official inspeiction of the high schools by the university is 
unnecessary. 

1. The Utiiversity has full power to require all students who 
cannot do its work to withdraw. There would be no danger to 
the university in allowing all boys and girls to have a chance to 
try university work after graduating from a standard high 
school course. . They would have four years of training, they 
would bring from the high school principal or the city superin- 
tendent, a certificate of graduation, from a school which would 
be inspected by the state department of education. It does not 
make very much difference what a boy or girl has had in his high 
school course, if he has gained maturity, and power and ability 
to study. He is prepared then to go on to the university, begin 
any where, take up almost any line of work and go on with it. 

Vol I. pp. 228, 272. 

2. The graduate from any high school having a four years' 
course which would be accepted by the state superintendent can 
if he is serious minded do the work of the university. President 
McKenny states that fifteen years observation and experience 
has convinced him that the question of scholarship is the least 
important consideiration involved. The normal schools have been 



Eeport of Special Legislative Committee. 37 

taking the graduates of those schools not on the university ac- 
credited Hst as well as those who are. 
Vol. III. pp. 873-876 ; 881. 

3. The reports of inspectors from the university and from the 
state department are usually in substantial agreement. Ex state 
superintendent L. D. Harvey stated that during his term of office 
an agreement was entered into whereby a written report was filed 
in the state superintendent's office on every school inspected by 
whoever inspected it. Once a month, the university and the state 
department exchanged reports. In the course of a whole year's 
inspection there was no material variation in the estimate of those 
inspectors, in more than a half dozen schools ; and the variation 
that did exist was a variation that might exist if the same man 
had visited the school at two different periods of the year. 

Vol. 11, pp. 458^60. 

4. The basis of admission to the university provided for '.n the 
Wehrwein Bill is practically the same as that for admission to the 
normal schools at the present time. 

The normal schools accept without condition, ?nd' without ques- 
tion, any one who presents a diploma from a high school haviig 
what is called a standard four-year high school course, or a di- 
ploma from a free independent high school. 
Vol. 1, p. 362. 



VJIT. 

It is unwise to put the control of the high school inspection in 
the hands of a board consisting of the president of the university, 
the state superintendent, a representative of the normal schools, a 
representative of the secondary schools, and the president of "'The 
Wisconsin Academy of Arts, Science and Letters" as has been 
suggested. 

1. The control of the high schools by such a board where it 
has been tried has led to college and university domination 
through the control of this board. The high schools of Indiana 
are controlled by such a board, composed of the president of the 
university, presidents of the various other colleges, and presidents 
of the normal schools. The colleges and the university absolutely 



38 Supervision and Inspection of Schools. 

dominate the situation and say to every high school in the state 
what they shall and what they shall not do. 
Vol. pp. 224-226. 

2. The appointment of such a commission will tend to fix or 
standardize high school courses. This is exactly what we do not 
want. Education today is expanding and growing and no man 
knows where the end is to be. The high schools should be left 
free to grow and expand so as to meet the needs of the communi- 
ties where they are located. 

Vol. 11, pp. 566-567. 

3. The criticisms of high schools so prevalent today can be 
traced back to the fact that high schools are not an outgrowth of 
district and graded schools but are closely connected with higher 
schools and their work has been largely determined by these 
higher schools. The character of the subject matter and the 
methods employed in teaching have been largely determined by 
these higher schools. The high school work has been made too 
difficult because the high schools have been regarded primarily 
as prepar'atoTy schools. There has been a liberality in regard to 
subjects but the subject matter has not been of the most profita- 
ble kind. There ought to be a change in the character of the work 
all along the line in the high schools. This we can do if we 
once cut more fully free from the upper schools. 

Vol. 1, pp. 200, 204. 

4. The control of the high schools by such a board will lead 
to a greater degree of separation between high schools and the 
district as well as graded sichools. The connection between high 
schools and these lower schools should be made just as close as 
possible if the high schools are to adapt themselves to the real 
needs of the people. If this is to be accomplished, the control 
of the high schools and the lower schools should be put under 
the same management. This control of high schools by a board 
will tend to get them farther away from the lower schools instead 
of nearer. ' The state superintendent is the chief administrative 
officer of district and graded schools and he should for the rea- 
sons just given be the ichief administrative officer of the high 
schools. 

Vol. 1, pp. 200-202. 



Report of Special Legislative Committee. 89 

5. It is proposed that such an inspection board contain a rep- 
resentative from the high schools. It is doubtful if it would be 
wise to put one high school principal where he would be called 
on to pass judgment on the work of other high schools. 
A'ol 1, p. 365. 



IX. 

Too much weight should not be given to the resolutions passed 
by the committee of the supervising principals' association favor- 
ing the inspection of high schools, by both the state superintend- 
ent and the state university. Some principals were sincere, while 
some were moved by a desire to discredit the state superintend- 
ent. The university inspired its alumni to oppose the passage of 
this bill. The situation is very complex and many motives en- 
tered into this action. 

Vol. Ill, pp. 800-802. 

The following persons favored the passage of this bill : 
C. P. Cary, State Superintendent of Schools. 
Vol. 1, pp, 222-244 ;273: 362-386 ;386-390. 

J. A. H. Keith, President Oshkosh Normal School. 
Vol. 1, pp. 357-368. 

H. L. Terry, State High School Inspector. 
Vol. 1, pp. 199-200. 

Hon. Duncan McGregor, Regent of Normal Schools. 
\"ol. 1, pp. 373-378. 



II. 

A Summary op the Arguments Opposing the Passage op 

This Bill. 

I. When the office of state superintendent was established 
the present complex educational situation was not anticipated. 

(1). The state superintend'ent maintains a position of com- 
plete independence of the university, and of exclusive jurisd'c- 



40 Supervision and Inspection of Schools. 

tion of his department in the matter of the supervision and in- 
spection of high schools. He bases his position on the constitu- 
tional provision that the state superintendent shall have super- 
vision of the common schools of the state. This phrase "the 
supervision O'f the common schools of the state" was incorporated 
in practically all the constitutions adopted in the western states ; 
and it was incorporated at a time when such institutions as the 
modern university and the modern high school did not exist. It 
was not foreseen at that time that there would grow up the com- 
plex relationship that now exists between the different grades of 
schools. It was not contemplated that any other system of ad- 
mission to the University should exist than admission by exami- 
nation. The beginnings of the modern accredited system, when 
the university departed from this system of admission by ex- 
amination, grew out of the attempt by the university tO' enable 
high schools to better adapt their courses to meet community 
needs. 

Vol. Ill, pp. 818-819. 

2, The passage of this bill is unnecessary for the state super- 
intendent now has all the power, necessary to fulfill his duties. 
The state superintendent has the authority to fix the standard of 
the high school courses, and to determine which high schools shall 
share in the state aid as well as which high schools may receive 
students from outside districts and charge tuition to the town- 
ships from which they come. In being given this authority he 
has sufficient weight, power and authority tO' meet all cases that 
he is called on to deal with. 
Vol. 1, pp. 263-264. 

II. The effect of the Wehrwein Bill is to abolish the inspec- 
tion of high schools by the university. This is not desirable for 
the following reasons : 

(1) There is a perfectly legitimate reason for the inspection 
of high schools by both the university and by the state superin- 
tendent. These schools exist for two purposes ; first, as the poor 
man's college, to fit boys and girls for life ; second, to fit boys 
and girls who wish. to do so to go to the state university. 
Vol. 1, p. 263. 



Report of Speci.vl Legislative Committee. 41 

. (2) A large part of the graduates of high schools gO' tO' higher 
institutions of learning. Three years ago an investigation by the 
university authorities showed that from twenty-five to forty per 
cent of the graduates of the high schools in Wisconsin go to 
higher institutions of learning. 
Vol. 1, pp. 383-384. 

(3) The preparation of these students who^ go on to higher 
institutions is much more efficient because of the university in- 
spection. 

There is a close relationship between the specifii: work carried 
on in the high school and the kind of work students are able to 
do after they get to the university. For example, the character 
of a course in engineering depends on the course in mathematics 
which forms the core of the course.' Those boys whO' come to 
the university not well prepared in mathematics as to both quan- 
tity and quality of work in this line have the very greatest diffi- 
culty in completing the course in four years. The boys who are 
in the high school and preparing for the university are entitled 
to the expert advice which the university gives through the in- 
spection for this advice informs them as to what will best fit 
them for their work after they get into the university. It does 
not allow these boys to wait until after they get into the univer- 
sity to find out what should have been done. 
Vol. 1, pp. 383-384. 

(4). The excellence of high schools in this state for all classes 
of pupils who attend them is largely due to the encouragement, 
inspiration, help and standards set by the university. This has 
been done most largely by its inspection system. The university 
has continually sought by definite constructive efifort to build up 
the high school courses. The high schools come directly to the 
university for help. The requirements of the university are more 
flexible and less rigid than those of the state superintendent. 
For example the independent high schools, those not under the 
control of the state superintendent, have arranged with the uni- 
versity courses which do not require algebra in the first year, and 
which do make physics an elective study for girls. This is not 
permitted in high schools which draw state money and are under 
the supervision of the state -superintendent. There has never 
been a time in the last five years when if a high school had a 



42 Supervision and Inspection op Schools. 

definite proposition to> modify its course and put into- it some sub- 
ject that had definite educative value that the university did not 
stand ready to recognize it. 

Vol. 1, pp. 280-281. Vol. Ill, pp. 821-823. 

(5). The influence of the university has improved condi- 
tions in a very large number of high schools. It has meant bet- 
ter teaching fonce; it has meant better equipment; it has fre- 
quently meant better sanitary conditions. 

' Vol. II, p. 460. Vol. 1, p. 219. 

(6). The inspection of high schools by the university gives 
the high schools the benefit of expert advice which cannot be 
given by the state department of education. The university has 
a staff of experts in its employ. It can send an expert in one 
line one year, and an expert in another line the next year. In 
this way the university can give the high schools very useful 
iniormation and advice. 

Vol. 1, pp. 215-216. 

(7). The present system of accrediting high schoo'ls admits 
seven-eighths of the high school graduates to the university on 
the same basis. The non-accredited high schools graduate about 
one-eighth of the total number of graduates of high schools. The 
university encourages high schools not on the accredited list to 
get on this list as rapidly as they can meet the requirements. 
Vol. II, p. 483. Vol. Ill, pp. 828-830. 

(8) The inspectors from the university are of great help 
to the superintendent in passing final jud'gment on his teaching 
force in the high school. These men who inspect are not only 
experts but are men of broad caliber and are distinctly helpful. 
The measure of authority with which they come adds to this. 

(9). The university does far more than officially inspect the 
high schools. At the present time the university has one in- 
spector who devotes all his time to the inspection of high schools. 
In addition to this the university siends out committees of the 
university faculty who are conducting teachers' courses at the 
university. The object of these teachers' courses is to' prepare 
teachers for the secondary schools. The inspection is therefore 
done by men who are first, actually engaged in teadiing ; second, 



Eeport op Special Legislative Committee. 43 

by men who are engaged in preparing teaehers for the sehools 
inspeeted. This gives a ver}- vital eonnection between the high 
school and the university. 

Vol. Ill, pp. 830-831. 

(10). The manner in which the reports of university inspect- 
ors are considered at the university is a very cautious one and 
which protects the interests of the high schools much better than 
the kind of consideration a report of an inspector will get at the 
state department of education. 

\Mien the report of an inspector in written form is received 
at the university it is first considered by the chairman and secre- 
tary of the faculty committee having charge of the grading of 
high schools, in consultation with the inspector making the report. 
They frequently spend from an hour to an hour and a half go- 
ing over the details of the report both as regards preparation for 
the university and as regards community needs. Finally the in- 
spector's report g'oes to the whole commitee composed of nine or 
ten members of the faculty, and is there gone over again, and 
finally gojes to the faculty for approval. This is a far more 'cau- 
tious method and of greater protection to the school and to the 
university than the method proposed in the Wehrwein Bill, and 
the method now in actual operation in the state superintendent's 
office, where one official goes out, inspects and submits his report 
to the state superintendent and if the superintendent finds it 
right, notifies the community. It depends on the judgment of tw^o 
men alone, which does not protect the interests of the high 
schools as well as the judgment of a much larger number of men 
as is the case with the plan of the university as outlined above. 
Vol. 1. pp. 380-381. 

(11). High school principals and city superintendents favor 
the present plan of inspection by both the university and the state 
department. A committee representing the Association of Prin- 
cipals and Superintendents of Wisconsin unanimously adopted 
the following resolution : "That we heartily approve of the in- 
spection of high schools by both the state superintendent and the 
university. However, we believe that the best interests of the 
schools would be enhanced if both the state superintendent and 
the university w^ould recognize the high school principals and the 
city superintendents in a tangible way by calling their representa- 



44 Supervision and Inspection of Schools. 

tives in consultation in all matters relating to such inspection or 
the formation of such courses of study. We, therefore, most 
earnestly oppose any and all legislation that would deprive the 
high schools of the benefits of inspection by either the state sup- 
erintendent or the university." 
Vol. 1, p. 214. 

III. The Wehrwein Bill is unnecessary since the forces now 
at work will solve all the evils complained of by the advocates of 
this bill even if it be granted that such eVils exist. 

(1). The university is liberal in adapting its entrance require- 
ments to meet local needs even where these are peculiar. For 
example, a few years ago it was found that the manual training 
courses in the Milwaukee high schools did not meet the universi- 
ty entrance requirements and hence were barred. The matter 
was taken up with the university and was readily adjusted so 
that these students were admitted to the university practically 
without conditions. On two occasions in the last five years com- 
mittees of the principals of the state came to the university ask- 
ng modifications of entrance requirements. In both cases the re- 
quests were granted. The university has shown its willingness to 
yield by giving additional credit for manual training and is will- 
ing to give more just as soon as manual training courses are 
strengthened so as to equal the other courses now m operation in 
the high schools in this state. 

Vol. I. p. 265. Vol. II, pp. 475-479 ; 479^81 ; 470-474. 

(2). Experts in the university and elsewhere are studying 
the educational values of high school studies for the students whe 
are in the high school, and the modifications which ought to be 
made in the course of study. High school men need and are 
getting the assistance of these men. 
Vol. II, pp. 483-487. 

IV. The Wehrwein Bill introduces a much more dangerous 
form of domination than that by the state university. 

(1). This bill places in one man's hands, the state superin- 
tendent, the full and sole power to inspect high schools, to con- 
trol the curriculum of the high schools, and to determine the 
entrance requirements to the university. If we must have domi- 
nation, the domination by a large representative body like the 



Report op SpEcirVi, Legislative Committee. 45 

university is far less dangerous than domination by a single in- 
dividual. 

\ol. I, pp. 230, 234, 274-275, 280. 

(2). The state high school inspector is a civil service officer. 
If Ave had one not as high minded and as conscientious as the 
present inspector, we could get rid of him only by a serious pro- 
cess. If it were taken out of the civil service class, the state sup- 
erintendent could use' it for political purposes. 
Vol. Ill, pp. 877-878. 

(3). The requirements in the Wehrwein Bill d'ominate the 
high school course of study more than the present university en- 
trance requirements. The Wehrwein Bill specified six units that 
must enter every high school course of study, while the present 
university entrance requirements name but six units. 
Vol. 1, pp. 48-49. 

(4). Great freedom and initiative are needed for progress. 
To get this we need a condition where one school can shoot ahead, 
then others can come up to this level, and so on. It is only as 
we have mobility and the high school teacher and principal have 
a chance to work out their own destiny can we hope for progress. 
New York is. an example of a state in which the educational sys- 
tem is simply fettered in the hands of the state superintendent. 
It is dangerous to give him as much power as this. 
Vol. Ill, pp. 879-880. 

V. This bill introduces the principle of the legislature writing 
the high school course of study or part of it. They are not the 
body most competent to do this. 

Vol. 1, p. 231-365-366. Vol. II, p. 469. 

VI. It is unreasonable to require the university to surrender 
all right to pass upon its own entrance requirements. The uni- 
vers^ity is willing to have this passed on by a board in which it 
has representation. It does not ask the exclusive right to de- 
termine these and it is unwise to give this power to any one man, 
either the state superintendent or the president of the university. 

Vol. in, pp. 876-877. 



46 Supervision and Inspection op Schools. 

If we admit students to the university on a low standard the 
number who go there wih be largely increased, and the number 
who can not profit by university instruction will also be largely 
increased. 

Vol. I, pp. 219, 234. 

VII. The university has proposed two compromise plans, 
either of which affords a reasonable basis of co-operation between 
the state department and the university, and will prevent the 
domiination of the high schools by any one. The plans proposed 
are as follows : 

First: This plan is that the university and the state depart- 
ment co-operate in the inspection of high schools, as follows, — 
The university inspectors will inspect a certain group of schools 
one year with their inspector. The state department will inspect 
another group of schools that year. Each will accept the inspec- 
tion of the other and the two inspection authorities will alternate 
in alternate years. 

Second : The inspection of high schools and the determination 
of the entrance requirements to the university shall be left to the 
control of a board composed as follows : — The president of the 
university, the state superintendent, a representative of the nor- 
mal schools, a representative of the secondary schools, and the 
president of "The Wisconsin Academy of Sciences, Arts and 
Letters." The inspector of high schools now under the control 
of the university and the inspector of high schools now in the 
state department are to be transferred to the control of this 
board. 

A^ol. 1, pp. 49, 50, 233-234. Vol. II, pp. 582-583. 

The advantages of this plan are as follows : 

First: It affords a fair basis of co-operation , between the four 
parties interested in high school inspection. It gives the univer- 
sity one representative on the board which determines the en- 
trance requirements to the university. The state superintendent 
who is properly interested in high schools because he apportions 
state money to them is a member of the board. The normal 
schools and the high schools are both interested in the inspection 
of high schools and are both represented on the board. The fifth 



Eeport of SpecIxU. LegislzVtive Committee. 47 

member, who is always a man of high character and attain- 
ments, will act as a balance between the different forces. 

Vol. 1. pp. 50-52; 233-23-i. \'ol. [II, pp. 819-820. Vol. 
III. p. 873, 880. 

Second: This builds on the present structure and attempts to 
emprove it, to remove friction where friction has occurred rather 
than to build a new plan or system. It will lead to more complete 
co-operation between all parts of the edeucat'onal system. 
Vol. 1, p. 5-i. 

Third : The control of university entrance requirements is too 
great power tO' give any one man, either the president of the uni- 
versity or the state superintendent. This board is a representa- 
tive body and can more safely perform these duties. There is 
no alternative between giving the state superintendent absolute 
power in high school inspection, the university absolute power, 
the present strife to continue, or to create such a board. This 
board will allay strife and meet the needs of the situation. If 
strife does occur it will be inside the board and will not disturb 
the whole educational system of the state. A majority would 
control but the discussion in the board would lead each to sec 
the viewpoint of the other, and would tend to bring the different 
interests together. The point of view which appealed to the 
commission as reasonable would prevaiil. Each would be justi- 
fied, if at all, by the merits of his propoisition. 

A^ol. I, pp. 50-54 ; 233-234 ; A^ol. Ill, 765-773. 

Fourth : This plan would add very little, if ai all, to the ex- 
penses of high school inspection, since the two inspectors now 
employed would simply be transferred to this board. 
Vol. I, p. 56. 

Fifth: The state of Minnesota has a board on very much the 
same plan as this and it has worked successfully for several 
years. 

Vol. 1, p. 56. 

The following persons opposed the passage of this bill : 
Mrs. C. H. Buckstaff. Regent I'^niversity of Wisconsin. 
Vol. Ill, pp. 871-875. 



48 Supervision and Inspection op Schools. 

John Callahan, Superintendent City Schools, Menasha, Wis. 
Vol. 1, pp. 390-399. 

C. E. Elliot, Professor of Education, University of Wisconsin. 
Vol. 1, pp. 378-384; 402-403. 
Vol. II, pp. 479-484. 
Vol. Ill, pp. 818-832. 

L. D. Harvey, President Stout Institute, Menomonie, Wis. 
Vol. II, pp. 458-479 ; 484-487. 

Charles McKenny, President Milwaukee Normal School. 
Vol. Ill, pp. 873-884. 

B. T. Nelson, Superintendent Schools, Racine, Wis. 

Vol. 1, pp. 220-222. 

C. G. Pearse, Superintendent City Schools, Milwaukee, Wis. 

Vol. 1, pp. 210-217 ; 262-266. 

G. W. Swartz, Superintendent City Schools, Chippewa Falls, 
Wis. 

Vol. I, pp. 217-220; 280-281. 

J. H. Trottman, University Regent. 
Vol. Ill, pp. 69-872. 

C. R. Van Hise, President University of Wisiconsin. 
Vol. 1, pp. 47-57 ; 121-123 ; 230-240. 
Vol. II, pp 582-584. 

G. A. Works, Superintendent City Schools, Menomonie, Wis. 
Vol. I, pp. 272-276. 



Eeport op Special Legislative Committee. 49 

COUNTY BOARD OF EDUCATION BILL. 
Summary of Arguments Favoring the Passage of the Bill. 

1. Introdutory : 

(1). This is one of onr most important educational problems 
for of the four hundred thousand children attending the public 
schools in this state, over two hundred thousand are in the* dis- 
trict schools. 

Vol. 1, p. 348. 

2. Four conditions must be fulfilled in order to have such 
country schools as we ought to have. They are the following: 

First: Physicial conditions. 

We must have decent physical conditions in country schools. 
This is being provided for by existing laws. These conditions 
have been vastly improved because of the law passed a few years 
ago giving state aid of $50 a year, for three successive years to 
every country school which complied with certain conditions with 
respect to physical conditions, teaching, and equipment. 
Vol. 1, pp. 353 ; 282. 

Second: The kind of teaching in country schools. 

We must have better teaching. The teachers must have the 
necessary academlic knowldge and professional knowledge. We 
have as agencies to prepare the the teachers, first, the state nor- 
mal schools. They are doing better work than ever before, and 
they will do better work in the future, for .they are now coming 
into the field with their courses for the preparation of country 
school teachers. Second, we have twenty-three county training 
schools. About fifty per cent of the teachers in the country 
schools are high school graduates. 

Vol. 1, pp. 195 ; 282-283 ; 354. 

Third: Better financial support for country schools. 
It is absolutely essential that we have better financial support 
for country schools. Less money is being paid into tlie country 
4 



50 Supervision and Inspection of Schools. 

schools than into any other schools in the state. The poorest 
teachers are found there. It is the law of gravitation. The 
cities pay salaries which call for the best teachers, the most ex- 
perienced teachers, and they get them. It is hard to find a match 
for Wisconsin in the low salaries paid to teachers. To do this, 
we have to go south of Mason and Dixon's line or to one of the 
old slave states. Two things are now under discussion that have 
in view a solution of this problem. They are : — 

(1). The establishment of a teachers' retirement fund, which 
will make it possiible for a person to engage in teaching and de- 
vote his life to it without starvation at the end of his period of 
efficiency. This will probably come up again in much the same 
form that it was passed at the last sessfion of the legislature. 
Vol. I, pp. 35J^355. Vol. II, pp. 440-441 ; 465. 

(2). A minimum salary law. 

The committee on education of the State Teachers' Association 
is making a study of some twenty typical counties in the state to 
see how a minimum salary law will operate. It 'is a very compli- 
cated problem. Some districts with a very low valuation will 
need help to pay even a fair minimum salary. Other districts 
with a relatively high valuation are now paying little or no tax 
for school purposes. For example, in Shawano county the as- 
sessed valuation of property in country districts ranges from 
$30,000 as a minimum, to $385,000, as a maximum. We find the 
counti-y district with an assessed valuation of $30,000, is now 
paying 8.3 mills on the dollar, and that it raised only $250 by 
local tax. It paid its teachers $30 a month and that is all is could 
afford to pay. There are thirteen districts in that county that 
levied no local tax at all. One district in that county could have 
paid the teacher $413 a month, without having any heavier local 
tax burden than this other district with an assessed valuation of 
$30,000. 

Vol. 1, pp. 261 ; 278-279 ; 35J-356 ; 

Vol. II, pp. 493-498 ; 501 ; 520-522. 

(3). Better supervision is absolutely necessary. 

These schools are not properly supervised at present. County 
superintendents are tied to their office by an abundance of clerical 
work. A county superintendent visits three or four schools in 



Report op Special, Legislative Committee. 51 

one day, staying perhaps half an hour in each school. In this 
brief visit he can do little more than inspect the physical condi- 
tions of the school. He can tell little or nothing about the equal- 
ity of the teaching that is being done. To do this and to help 
the teacher to do better teaching it is necessary to stay a whole 
day or even more. The country schools are filled with inferior 
teachers, therefore these teachers need all the more expert sup- 
ervision to help them under the unfavorable conditions under 
which they are now working. 

Vol. I, pp. 195 ; 243 ; 285-286 ; 348-350 ; 356. 

Vol. II, p. 441. 

Fourth: Some further conditions that are unsatisfactory. 

(1). The schools in the country districts are too small and 
the salaries are too low. There are working in the country 
schools 169 men and 1221 women who are paid $368 a year. 
They are being paid at the rate of $30.50 a month. There are 
198 men and 1966 women who are getting $323 a year, $29.62 
a month. There are 145 men and 2546 women who are getting 
a yearly salary of $281 or $23.42 a month ; 60 men and 1760 
women are getting a yearly salary of $238 or $19.83 a month; 
19 men and 507 women are getting a yearly salary of $196 or 
$16,331/^ a month. There are also 37 women who earn at the 
rate of $13.00 a month. To summarize, there are 590 men and 
8067 women who are earning a salary of 83 cents a day, on the 
basis of twelve months in the year. The minimum wages paid 
to teachers in the country schools is 52 cents a day. The scrub 
women in Milwaukee get $1.60 a day. 

There are 380 country schools that have an enrollment of more 
than iive and less than eleven. There are 701 schools with an 
em oilmen t of more than eleven and less than sixteen, making a 
total of 1081 out of 6500 country schools having an enrollment 
of fifteen or less children. 

Vol. 1, pp. 277-278, 290-291. 

(2). The attendance is too i /regular and pupils drop out of 
school too early in their course. 

In Calumet county, for example, in the year ending June 30th, 
1909, there were enrolled in country schools outside of graded 
schools 1972 children. One-eight or 246 should have graduated, 
while actually only 44 graduated. More than fifty per dent of 



52 Supervision and Inspection of Schools. 

the pupils go no further thain the fourth grade. They quit with- 
out a fair knowledge of the fundamental operations in arithme- 
tic, very little knowledge of grammar, English, geography, or 
history. The great majority of these young people are growing 
up without a reasonable amount of education. 
Vol. 1, 257. 

11. The proposed county board of education should be estab- 
lished for the following reasons : 

(1). It wiill lead to better supervision of country schools and 
this is one of the things vitally necessary. The reason why 
schools in cities are better than schools in the country districts 
is often due to the fact that they are better supervised and more 
intelligently looked after. This bill gives the county board of 
education power to appoint assistants to the county superintend- 
ent and to furnish him other much needed assistants. This is 
the first absolutely necessary step, namely, to provide more help 
in the work of supervtision of country schools. 

Vol. I, pp. 267-268 ; Vol. II, pp. 657-658. 

Vol. I, pp. 356-357. 

Vol. II, pp. 427-430. 

(2). It will give the county superintendent the independence 
which he must have tO' do< his work well. 

Under the present system a county superintendent must be 
dominated a good deal by ,the spirit of the people. Often a 
county superintendent fails of re-election because he raises the 
standards of teaching and of teachers' wages. If this bill passes, 
he will have with him a board which will be interested in im- 
proving the country schools. They will provide him with assist- 
ant supervisors and clerks. No one man can look after the 
schools of such a county as Marathon, which is larger than the 
state of Rhode Island. He visits the school once a year. On 
one visit the teacher is teaching arithmetic in the half hour he is 
there, the next time geography, etc. He cannot tell if he has 
helped her. Then in many cases, there is a different teacher 
each year. 

Vol. HI, pp. 833-838. Vol. H, pp. 661. 

(3). This bill will make it possible for the county superin- 
tendent to spend all his time supervising schools. Now he is 



Report of Special, Legislative Committee. 53 

obliged to spend a good share of his time during the last year of 
his term getting ready for the election. If he does not do this, he 
does not get re-elected. Under th€ plan proposed he has only 
this board to influence. He can give more of Ms time to the 
schools. 

Yo\. II, pp. 436-437. 

(4). It will tend to get better men in the office of county 
superintendent, for the following reasons : 

Election by a county board of education will tend to longer 
tenure of office. The present system of rotation in office through 
election by the people tends to shorten the term. This prevents 
the gro\Ving up of a profession of county superintendents as 
there is now of city superintendents. The city superintendent 
works on year after year in his office, becomes familiar with the 
problem to be mastered. There is created for city superintend- 
ents a budget of common knowledge. 
\"ol. I, pp. 267-268. 

The county board of education will be at liberty to choose the 
best man that can be found for the position. They will not be 
obliged to select the superintendent from the confines of the 
county as at present. This bill gives them a much wider field 
to select from. 

Vol. I, p. 286. \^ol. II, p. 495. 

It will hold out to men in the work of the county superinten- 
dency the probability of promotion in their work. If a man 
made a good record in one county it is entirely probable that he 
would be sought out for promotion to the superintendency in a 
larger county at a better salary. 
Vol. I, pp. 268-269. 

It will tend to increase the salaries paid to county superin- 
tendents. This is one of the first steps that is necessary, for the 
salary has been too low to attract the best men. Many of the 
county superintendents have been obliged to engage in other busi- 
ness part of the time. The average salary of county superin- 
tendents is now $960 a year, which is entirely too low to get com- 
petent men. 

Vol. I. p. 261-298. 



54 Supervision and Inspection of Schools. 

(5) The management of diploma examinations as provided 
for in this bih will tend to improve the work done in the counry 
schools. 

Putting these diploma examinations in the hands of a disin- 
terested board provides a check on both the county superinten- 
dent and on the teachers. Under the present plan where the 
county superintendent conducts these examinations, it sometimes 
happens ,that everybody is passed. TMs makes a good showing 
for the county. The tendency of this is towards a lower g>-rade 
of work. 

Vol. II pp. 455-457. 

The fact of having a body of intelligent men and women in the 
county going about from school to school, will be an uplift 
because the}^ cannot do otherwise than make comparisons that 
will be helpful. They will note the equipment of a school in 
this district as compared with the equipment in the next. Even 
the oral report they will make in talking to teachers and to the 
people will be helpful. ''Such and such a school has such an 
equipment. This school 'is a little behind ; this school is well 
to the front," will tend to improve conditions. 

Vol. II. p. 467. 

Vol. II. pp. 453-456. 

(6) It will tend to better enforcement of the compulsory 
education law in country districts for it will give the superinten- 
dent greater independence in his position. The irregularity of 
attendance lin the district schools is one of the greatest obstacles 
to their success. Three or four years agO' the average daily 
attendance of children in cities was about ninety-five per cent, 
and in the country about sixty-five. This shows the effect of 
enforcing the compulsory education law in cities. 

Vol. I. p. 261. 

Vol. IL pp. 516-517. 

(7) It will tend to the building up of a better educational sen- 
timent among the people of the county. 

The superintendent will be in ofQce longer and will come to 
know the people and their peculiarities better. He will be in 
a more independent position and will be at liberty tO' be more 
aggressive in calling attention to educational needs. This is 



Report of Speci^m, Legislative Committee. 55 

one of the large factors in the improvement of country schools, 
for country people need educatlion as to the necessity of the 
various needs mentioned above. Many country people now have 
the impression that country schools are necessarily poor schools. 
This needs correction. 

\-ol. I. pp. 258-260. 

Vol. II, pp. 511-512. 

(8) This measure is in accord with the principles of dem- 
ocratic government for it gives to the people in the country 
districts rights which, in the past, have been denied them. 

It does not take power away from the peope any more than 
it does in the city of Milwaukee, or elsewhere, where the people 
select representatives and these representatives do business for 
the people. This bill gives the people in the country more nearly 
representative government than they have had in the past. For 
years the cities have enjoyed the right to go out and select the 
best man they can find to manage their schools. The people in 
the country have been deprived of this privilege, which is one o: 
thelir rights. They have been obliged to select the man tO' man- 
age the schools of the county from the confines of the county 
whether they can in this way get the best man for the place or 
not. This bill gives them this right. They elect representatives, 
a county school board, just as cities do, and this board selects the 
best man that can be found for county superintendent. 

Vol. I, pp. 269-270 ; 285-287. 

Vol. II, p 406; 657-660. 

(9) This bill provides a wise method of selecting the county 
school board. It provides that the board be elected by the people. 
This is safer than selection by the county board. In the latter 
case politics, and corrupt practices are much more apt to creep in. 

(10) The County School Board Bill is in line with our gen- 
eral educational policy. 

At the present time from twelve to fourteen thousand educa- 
tional positions are filled each year by boards of education elected 
by the people. We would not dream of electing a city superin- 
tendent of Milwaukee, or any other large city, by popular vote 
and from the confines of the city. 
Vol. I, p. 289. 



56 Supervision and Inspection of Schools. 

The following persons appeared before the committee fa^'^or- 
ing :the adoption of the County School Board Bill : 
C. P. Gary, State Superdntendent of Schools. 

Vol I, pp. 243; 351-353. 

Vol. II, p. 565. 

W. H. Cheever, Institute Conductor, Milwaukee Normal 
School. 

Vol. II, 656-661. 

C. E. Elliot, Professor of Education, University of Wisconsin. 
Vol. II, pp. 493-495. 

Leo' P. Fox, County Superintendent, Calumet County. 
Vol. I. pp. 256-262. 

H. L. Gardner, County Superintendent, Vernon County. 
Vol. II, pp. 625-626. 

S. Y. Gillan, Editor Western Teacher. 
Vol. II, pp. 465-469. ' 

L. D. Harvey, President Stout Institute. 
Vol. I, p. 195. 
Vol. II, pp. 426-443. 

F. X. C. Hannes. 

Vol. II,pp. 626-630. 

J. A.' H. Keith, President Oshkosh Normal School. 
Vol I, pp. 353-357. 

Charles McKenney, Presiident Milwaukee Normal School. 
Vol II, pp. 499-504. 

Duncan McGregor, Regent of Normal Schools. 
Vol. I, pp. 395-307. 

C. E. Patzer, Supervisor of Practice, Milwaukee Normal 
School. 

Vol. I, pp. 277-280 ; 288-295 ; 404-408 ; 413^20. 



Report op Special Legislative Committee. 57 

C. G. Pearse, Superintendent City Schools, Mihvaukee, Wis. 
Vol. I, pp. 266-270. 

J. F. Sims, President Stevens Point Xormal School. 
Vol. I, pp. 348-351. 

C. F. Viebahn, Member of Wisconsin Assembly. 
Vol. I. pp. 420-422; 
Vol. Ill, pp. 614. 

Mr. L. W. Wood, Neillsville, W^is. 
Vol. I, pp. 281-288. 



A Summary of Amendments for the County Board op 
Education Bill. 

(1) A definite requirement should be made to the effect 
that an assistant or deputy shall be appointed for every so many 
schools. This will make it reasonably certain that when the law 
is in effect we will have supervision that wiill supervise. Such 
a provision will prevent the economy of the board form im- 
pairing the work of supervision by requiring them to appoint a 
certain number of deputies. On the other hand, it would pro- 
tect the county from the appointment of an undue number c/f 
deputies. 

Vol.. II, pp. 428-431 ; 500--504 ; 656-659 ; 466 ; 469. 

(2) This bill might well go a step further and fix a salary 
for the county superintendent graded according to the number 
of districts in a county, that is, a minimum salary. The min- 
imum salary for assistants should also be fixed. 

Better salaries is the heart of this problem. We must pay 
more money to get men and women who are compete'nt to super- 
vise these schools. These salaries must compare favorably with 
the salaries paiid supervisors in villages and cities if we are to 
get the same talent for the country. There is no reason why 
the schools in the country are not worthy of about as good super- 
vision as the schools in the cit}'. The little village high schools 
are paying from fifteen to sixteen hundred dollars to their prin- 



58 Supervision and Inspection op Schools. 

cipals. We cannot get a man to go out as deputy and be away 
from home for much less than that. 

Vol. II, pp. 433-434 ; 662-663 ; 438-440. 

This policy of paying good salaries is what has made the 
Wisconsin County Training Schools a success. This policy was 
insisted upon from the start. Now these training schools are pay- 
ing as good salaries and have as good teachers as are found, in any 
normal schools in Wisconsin. 
Vol. II, pp. 441-443. 

A minimum salary clause is needed here while it was not 
needed in the case of the training schools because in the 
latter the county has an investment of buildings, and they say, 
"^'Now, we have got to have some teachers in there who will look 
after that thing." When a board is electing a county superinten- 
dent they are not apt to look on it as an investment. 
Vol. II, p. 453. 

When the state passed a law permitting counties to pay the 
expenses of county superintendents up to $200 there was not a 
dozen counties in the state that did this. After the law was made 
mandatory there was a large number of superintendents who 
never presented a bill for expenses. They were afraid it would 
hurt them at the next election. 

Vol. II, pp. 433-434; 662-663. 

Other minor changes are sug'gested on the following pages : 
Vol. Ill, pp." 897-902 and also 911-912. 

No arguments were offered opposing the passage of this bill. 



Letters from County Superintendents. 

The following circular letter was sent by the Committee to 
every County Superintendent in the State, with the request that 
the questions contaiined therein be briefly discussed. 

1st. Is it advisable to provide by law for a County Board 
of Education to be elected by the people and give such Board 



Report of Speci^vl Legislative Committee. 59 

the power of electing the County Superintendent of Schools and 
assistants as the Board may deem necessary ? 

This is the fundamental principle of the bill introduced in the 
last legislature and which was known as the Board of Education 

Bill. 

V .^ ail 

2nd. Would it be advisable to provide in the above bill the 
number of assistants that each county superintendent is to have 
and make it mandatory on the part of such boards to appoint 
the assistants? 

This would necessitate some sort of classification of the 
countJies, the number of assistants depending on the number of 
schools in each county. 

Granting- an ofifice assistant how many schools can a superin- 
tendent efficiently supervise ? 

3rd. Are there any features of the County Board of Educa- 
tion Bill that are objectionable or that can be improved upon? 
If so, kindly make suggestions. 

4th. Do you favor a law providing for the consolidation of 
schools having an enrollment of less than ten or t>velve children ? 

The answers to the above letters are filed in the legislative 
reference library. However, a brief summary of the replies 
is included in this report. 



Summary of Letters. 

Question 1. 
Adams County. 

If Chapter 518, Laws of 1905, were amended to compel the 
county board to pay traveling expenses of coimty superin- 
tendent and add a section providing assistance in office and in 
diploma examinations, the conditions in the rural schools would 
improved, if educational qualifications are demanded of the 
board. The chairman of the county board of supervisors 
should not be a member. 

Ashland County. 

Sincerely believe in new plan. 

Barron County. 

Will give county superintendent a feeling of security and en- 
able him to do his full duty. 



60 Supervision and Inspection op Schools. 

Bayfield County. 

Should prefer to be elected by people than by any three per- 
sons. Board would be helpful in forwarding some measures. 
Superintendent should select assistant. 

Buffalo County. 

Would take rights from people. 

Burnett County. 

Do not see how such a law could fail tO' operate more justly 
as a rule, than the present system. Superintendent should bft 
paid enough to enable him to employ own assistant. Chairman 
of county board should not be ex-officio a member of county 
board of education. 

Calumet County. 

Heartily in favor of it. 

•Chippewa County, 

Heartily in accord. Will create profession of county super- 
intendency. 

Clark County. 
Favors the bill. 

Columbia County. 

Favors measures as to election of superintendent and assist- 
ants. Should not have too many assistants. The inherent de- 
fect of the schools is the apathy of the local board and patrons. 
Omit provision making county board of education authoritive 
inspectors. Furnish superintendent one deputy but make him 
ineligible to superintendency for a certain term after finishing 
his service as deputy. 

Crawford County. 

People are competent tO' elect superintendent. 

Dane County. 

1st District. — Yes. Minimum salary for superintendent. 
2nd. District. — People should vote for superintendent. 

Door County. 

Decidedly advisable. • 



Eeport of Special Legislative Committee. 61 

Douglas County. 

Personally, I am opposed to the law and so is every citizen in 
my county with whom I have talked. Neither desirable nor 
advisable. 

Dunn County. 
Favors the bill. 

Florence County. 

No, because County Superintendent would be under control 
of three men and must dance to their music or get out. This 
would promote graft of the worst kind. 

In this County, it would set educational affairs back ten years. 

Fond du Lac County. 

Most emphatically yes. Will make office of superintendent 
dependent on merit rather than on political pull. 

Forest County. 

No harm can come from such a board as proposed. May 
help to put superintendency on business basis. Measure should 
contain qualifications for members as to sex, residence and pro- 
perty. 

Grant County. 

Favors the bill. Would make a profession of the county 
superintendency. Women should be eligible. There should be 
certain qualifications for members. County should be divided 
into districts and one member from each district. 

Green Lake County. 

A'ery advisable. Would make tenure of office more certain. 
One of the greatest moves toward bettering common schools. 

Iowa County. 

Approve bill. Will be less politics, ^^'ill enable county super- 
mtendent to improve country schools. 

Iron County. 

Do not deem it advisable. 

Jackson County. 
Favors the bill. 



62 Supervision and Inspection of Schools. 

Jefiferson County. 

If (it is largely tO' give assistance and co-operation, very well. 

Jiuieau County. 

Would be a good thing. Board would have power to say to 
superintendent, "We will increase your salary if you will stay 
with us." Board would know what superintendent has to do. 
Great need of country schools is more visits from supervisors. 

Kenosha County. 

Bill would not furnish much relief. , 

Kewaunee County. 

P'ower toi elect superintendent should not be taken from the 
people. I have faith in the motives of the common people, and 
their ability to cope with educational matters. 

La Crosse County. 

Present system inadequate. County Board of Education may 
be an improvement. 

La Tayette County. 

No. School affairs should be out of politics. 

Langlade County. 

This bill is a move in the right direction, but the board should 
not be too small lest politics may enter. 

Lincoln County. 

One O'f ithe best pieces of legislation possible. Best talent 
could be employed. With such a law professionalism would 
count more and pull less. 

Manitowoc County. 

Heartily favor measure. Would eliminate politics. Favor four 
year term for coimty superintendent. 

Marinette County. 
Favor the bill. 

Marquette County. 

Strongly favor such a law. 



Report op Speclu. Legislative Committee. 63 

Milwaukee County 

Think it advisable to provide for such county board of educa- 
tion. Some new plan ought to be tried. Nothing could be much 
worse than the present system. While the county board at 
present has some powers, they rarely exercise the power. 

Monroe County. 

In favor of bill except to clause giving board power to elect 
superintendent. Would prefer to have county board of super- 
visors appoint superintendent. 

Oconto County. 

Judging by the ability of the average number of the district 
board to select a teacher, I doubt whether when he was elected 
to the position of member of this county board, he would do any 
better. 

Onedia County. 

Not in favor of bill. Nearer to masses the better. Less 
political work under present system. 

Outagamie County. 

Grant power to superintendent to make effective his recom-^ 
mendatlions. Now has elaborate advisory powers but none to 
enforce recommendations. 

Ozaukee County. 

May not be very popular but a fair measure. x\ll board mem- 
bers may come from cities or villages according the way bill is 
drawn. District schools may not be represented at all. This 
should be corrected. 

Pepin County. 

This county presents few advantages to be secured by having 
a county board of education. Only 41 districts. 

Pierce County. 

Good plan. Would do away with campaining. Board would 
look more closely to the merits of candidates. 



64 Supervision and Inspection of Schools. 

Polk County. 

Believe that the people o£ the county should have privilege of 
electing all county officers by direct vote. Bill should specify 
qualifications of county superintendent, one of which should be 
two years' residence in the county. 

Portage County. 

Opposed to the bill because it is undemocratic. 

Price County. 

I have not been in sympathy with this movement. 

Racine County. 

Meets my hearty approval. Would take office out of politics- 
Will give country schools better supervision. 

Richland County. 
Yes, favor the bill. 

Rock County. 

Seems advisable. Superintendent should be elected from the 
county he supervises. 

Rusk County. 

Yes. Favor the bill. 

St. Croix County. 
Strongly favor. 

» 
Sauk County. 

Think it not advisable. If it would work out as prumotors 

think it would, then advisable. In favor of a law to provide 

necessary salaries and assistants. 

Shawano County. 

Yes. If number if assistants be mandatory. 

Sheboygan County. 

Heartily favor. Would make county superintendency more 
permanent. 



Kepobt of Special Legislative Committee. 65 

Trenipeauleau County. 

Poor men might be continued in office by such board. 

Vernon County. 

Was opposed to bill at first because I thought it might lead to 
a political machine ; but the more I have thought of the matter, 
the more I am convinced that county supervision of rural schools 
will always be a failure under the present system on account of 
lack of financial assistance or clerical help. Pressure of work 
in office compels superintendent to neglect supervision. Change 
will be beneficial here. I heartily favor it and will gladly support 
it. 

Walworth County. 

In favor of plan. Object to assistants being chosen by board. 
Superintendent should choose his own assistants. 

Washburn County. 

Favor bill. Will help to make a profession of county super- 
intendency. 

Washington County. 

Such a law would be a good one. In this county at present 
only seven men are legally qualified, five of these hold more de- 
sirable positions and would not run for the office, so the county 
is limited in its choice. Under the proposed law men from out- 
side could be secured without "Carpet bag" methods. It is 
more businesslike. Fourth class cities with supervising princi- 
pals should be excluded from territory of County Superinten- 
dent. 

Waukesha County. 

Members of board would live far apart and therefore difficult 
to get to meetings. Board would interfere with superintendent's 
work. One of the board would be superintendent, the rest, in- 
cluding the official superintendent would be figure heads. 

Waupaca County. 

County board of education will give better supervision. 

WausharaCounty. 

A wise step. Board would be prompt to respond to needs. 
5 



66 



Supervision and Inspection of Schools. 



Winnebago County. 

. Such legislation would be of great benefit to rural schools- 
Better salaries would be paid for efficient servtce, so best men 
would be drawn into . the work. Appointment of assistants 
should be mandatory. 

Wood County. 

I am going out of the business but I think that if the super- 
intendent is to do eftective work, the needs of oftice should be 
provided for by some one who keeps in touch with the work. 

Xo report from Brown, Dodge. Eau Claire, Green. ]\Iarathon^ 
Sawyer, Taylor and Vilas Counties. 



Summary of Replies by Counties. 



County. 

Adams .No 

Ashland . . .-. . .Yes 

Barron . . . ., Yes 

Bayfield ;... ....Xo 

Brown 

Buffalo No 

Burnett Yes 

Calumet Yes 

Chippewa . , Yes 

Clark Yes 

Columbia ^ es 

Crawford X'o 

Dane 1st. Yes 

Dane 2nd No 

Dodge 

Door . Yes 

Douglas No 

Dunn Yes 

Elau Claire 

Florence X^o 

Fond du Lac Yes 

Forest Yes 

Grant Yes 

Green 



County- 
Green Lake ". Yes 

Iowa Yes 

Iron .Xo 

Jackson Yes 

Jefiferson ? 

Juneau Yes 

Kenosha X'o 

Kewaunee X^o- 

La Crosse Yes 

La Fayette Xo 

Langlade Yes 

Lincoln Yes 

Alanitowoc Yes 

Marathon 

Marinette Yes 

Marquette Yes 

Milwaukee Yes 

Monroe Yes 

Oconto No 

Oneida No 

Outagamie No 

Ozaukee Yes 

Pepin ? 

Pierce Yes 



Report of Special Legislati\-e Committee. 



67 



Comity 

Polk Xo 

Portage Xo 

Price Xo 

Racine Yes 

Richland Yes 

Rock Yes 

Rusk ^/es 

St Croix Yes 

Sauk Xo 

Sawyer 

Shawano Yes 

Sheboygan Yes 



County 

Taylor 

Trempeauleau Xo 

X'ernon Yes 

\ilas 

Walworth Yes 

Washburn Yes 

Washington Yes 

Waukesha X'o 

Waupaca Yes 

Waushara Yes 

Winnebago Yes 

^Vood Yes 



Counties in which superintendents favor bill 42 

Opposed OA 

Xon-committal .> 

Xo report g 



68 Supervision and Inspection of Schools. 



SCHOOLS FOR THE DEAF AND BLIND. 

Summary of the Arguments Suggesting Changes in the: 
Government of the State School for the Deaf and 
the State School for the Bl-^nd, 

1 The present plan foi- the educatronal management of these 
institutions is unsatisfactory and should be changed. 

(1) It is unjust to classify these schools for tbe education 
'of a special class as charitable institutions. The fact that room 
and board are furnished does not make them charitable institu- 
-tions any more than West Point and Annapolis. If the blind 
:and deaf persons are started out in life with the impression that 
they are objects of charity, they will be less likely to succeed. 

Vol. I, pp. 57, 59-60. 

(2) The superintendent of the school for the blrud and many 
of the teachers have frequently been incompetent to properly 
conduct the educational side of the work. At one time a man was 
superintendent who had only a common school education. In 
the past sixteen years, there have been several different superin- 
tendents and only one was an educator. In fifteen years, there 
has not been engaged in the state school for the blind, one teacher 
of the blind who has made that a speciality. Rev. Barnes states 
that during the four years that he resided at the state school for 
the blind there were only three or four teachers who could 
read the raised print for the blind, yet they were there to teach 
the blind. They have been teaching the weaving of rag carpets 
there since 1878, and yet in all that time they have never had 
a man or a women there to teach carpet weaving who knew how 
to weave a rag carpet. 

Vol. I, pp. 59, 63-64, 67-70. 

(3). This is the kind of a school where trained leadership is 
most necessary. The fact that we have not had it, has produced 
very bad results., Men and women come from that school utterly 
unprepared for the strenuous fight for a living. They know noth- 
ing of what other blind persons are doing to earn a living. 
Vol. 1, pp. 63, 69, 71. 



Report op Special Legislative Committee. 69 

(4:). The state school for the bhnd has been used as a politi- 
cal institution, a hospital for broken-doAvn politicians. 
Vol. 1, pp. 67, 68. 

II. The plan proposed in this bill will remedy the evils in the 
present plan of managing these special schools. 

(1). It. will make them educational and not charitable in- 
stitutions. The two members of the board who are alumni of 
these institutions will take a special interest in the schools. The 
inspector of schools for the deaf is a paid official and an expert 
along this line. The state superintendent will also be more in- 
terested making them real educational institutions for these spe- 
cial classes who most need an education and one fitted to their 
special needs. 

Vol. 1, pp. 58, 61. 

(2). This would encourage blind people to get a higher edu- 
cation. The state school for the blind would be on a par with 
the high schools of the state and pupils graduating there would 
be eligible to enter the University. 

(3). The plan proposed in this bill has been successful in 
other places where it has been tried. The state of Minnesota 
has such ajplan, and it has been a pronounced success. Tn the 
city of Milwaukee there are three day schools for the blind, and 
in Racine, one, all of which are under the control of the boards 
of education. The state of New York has an appropriation of 
.$300 for aid to graduates of schools for the blind in entering the 
higher schools. 

Vol. 1, pp. 58, 61, 72. 

III. The transfer of institutions and schools for the blind, 
deaf and feeble-minded, from the charge of boards having the 
control of penal and chartitable institutions to the control which 
makes them educational institutions is a movement going on the 
country over. In the educational legislation passed last year, 
in some cases the name of the school has been changed so as 
to take away the charitable or penal feature, and make it a school 
and not a place of detention. 

A'ol. II, pp. 291-292. 



70 Supervision and Inspection op Schools. 

The following persons favored the passage of this bill : 
Rev. R. J. Barnes, Vol. 1, pp. 62-72. 
Professor C. E. Elliot, Vol. II, pp. 490-491. 
Dr. J. K. Schuster, Vol. 1, pp. 57-62, 73. 
Rev. Adam Zepp, Vol. 1, pp. 69-71, 72-73. 



A Summary op the Arguments Opposing t'he Passage of 

This Bill, 

1. The creation of this board would introduce in the manage- 
ment of these schools, discord, and this would impair -their effi- 
ciency. The present board knows more about the management 
of these institutions than any new board would. If a new board 
made recommendations which the board of control felt obliged 
to veto, clashing would occur at once, 'ihis w^as the experience 
with the two board plan of management of the Wisconsin Tuber- 
culosis Sanitarium. The last legislature felt obliged to change 
the management, and did so, concentrating authority in one 
board. Under the plan of two boards to run the state institu- 
tions followed years ago, the conflict became so detrimental that 
the system was changed. Even the law. which provides that the 
board of control shall elect the stewards of these institutions 
leads to friction where the superintendent is not also steward. 
The superintendent is consulted b}' the board in the selection of 
the steward and he knows it, and is explicitly informed that he 
is under the direction of the superintendent, yet he often feels 
that he is not obliged to follow the superintendent's direction be- 
cause the Board of Control elected him. Central and single con- 
trol is essential to the successful management of any institution. 
If the two boards always agreed there would be little or no ob- 
ject in having two boards. 

Vol. TIT. pp. 694-701; 702. 

2. Since both these boards are non-resident and can meet only 
at stated times it would be very difficult to secure action on mat- 
ters and get things done. I would add unduly to conservatism of 
their management. . 

Vol. Ill, pp. 701-703. 



Report of Special Legislative Committee. 71 

II. The present board of control takej great interest in the 
•educational manaj_,enier.t of these sthools, and it is efficient in 
this work. 

(1). Members of the board of control visit these schools very 
frequently.' Air. Graebner states that a few years ago the board 
sent the superintendent of the schools for the deaf, and h-mself, 
east to visit the most important schools of this kind to see what 
are the best methods to follo-w here.- The result was that in 
Wisconsin we reduced the sign method and extended the oral 
method. 

Vol. Ill, pp. 686-689. 

(2). The school for the blind does fit its students to earn 
a living.. The school lia.s a department for teaching piano-tun- 
ing, willow work, domestic sciience anji manual training. It has 
as many depar.tments as the state has provl'ded buildings and 
makes appropriations for. The state recently built a new build- 
ing for music and piano-tuning. 

Vol. Ill, pp. 716, 718, 727-728. 

(3). The' school for the blind has trained teachers. It is true 
that it does have a few blind teachers. This is a mistake but 
they are retained out of deference to the sentiment of the insti- 
tution. For some time the departments of manual training, do- 
mestic science, piano-tuning and music have been conducted with 
the end of training these students to earn a living. 
Vol. Ill, pp. 718. 

(4). Blind people are unreasonable in their criticisms. They 
are pitied, petted and relieved of duties at home so much that 
they expect the same treatment at school and complain if they do 
not get it. This is indicated by the fact that Prof. Hutton, who 
was one of the most competent men who ever had charge of this 
school, made hiimself very unpopular by enforcing reasonable 
rules. When he left at the end of two years there was general 
rejoicing by- the students. One of the things he found it neces- 
sary to do was to break up immoral practices by the inmates. 

The general experience of superintendents of schools for the 
l)lind is that this is the greatest struggle they have to make, to 
maintain moral conditions. This is not true of the deaf. Years 
ago this school was in practice a home, not simply a school. It 



72 Supervision and Inspection op Schools. 

has now outgrown this, and this change has brought some criti- 
cism upon the school. 

Vol. Ill, p. 716-718; 719-721. 

(5). The charge that the school for the blind has been a hos- 
pital for broken-down politidians is false. Years ago a Mrs. 
Little was at the head of the school. It was then a home for 
the blind, not a school. She was succeeded by Prof. Parker. 
He in turn was succeeded by Mr. Pease. They made it a school 
but the blind did not like it as well as when it was a home. The 
superintendent himself has not been a trained expert in teaching 
the blind, but he does not teach them. He has general manage- 
ment of the school while trained teachers are employed to dO' 
the teaching. The recent selection of Dr. Brown as the head 
of this institution was made because he had desirable personal 
qualities, strength of character and moderation. The board felt 
that since there is a great deal of sickness there, it would be a 
good thing to have a physician at the head of the school. The 
doctor is not a politician. 

, Vol. Ill, pp. 721-725. 

(6). Professor Walker stated that he was informed by Judge 
Lyon, then president of the board, that the board did noit know 
his politics and did not want to know. He further informed 
Mr. Walker that the governor did not know that he was tO' be 
appointed. No political pressure has in any way been brought 
to bear. Mr. Graebner stated that since he has been a member 
of the board a number of appointments have been made, and in 
no way has the board ever considered the politics of the person 
who applied or was appointed. 
Vol. Ill, pp. 729-731. 

III. The board to manage the educational phase of the institu- 
tions as proposed in this bill, is unwisely constituted. 

(1). It is unwise to put the state 'superintendent of schools 
and the inspector of schools for the deaf, his subordinate, on the 
same board. The latter would in the nature of the case not be a 
free agent. 

Vol. Ill, pp. 703-704. 

(2). Deaf and blind persons are defectives, and have not the 
same independent and reliable judgment as persons who have 



Report of Special Legislative CoiiiiiTTEE. 73 

not these defects. On a board of this kind they would be very- 
liable to follow the judgment of some one in whom they have 
confidence instead of acting on their ow^n judgment. The blind 
and deaf live largely in a personal world instead of in a world 
of principles, and act from personal motives. 
Vol. Ill, pp. 703-707, 713. 

(3). In the meetings of the board it would be exceedingly 
difficult to transact business with two defectives, a blind and a 
deaf person on the board. 
Vol. Ill, p. 705. 

(4). It would be very difficult for the governor to make a 
wise choice of a regent from the alumni of the school for the 
deaf, said regent to be recommended by this association. There 
is no alumni association of the school for the deaf. Once in 
three years a reunion is held of deaf persons who have attended 
the school. Perhaps one-fifth of these are graduates of this 
school. The attempt of this association to recommend persons 
for regents would lead to factionalism and bitterness. In a large 
sense they are children, and act from personal motives. 
Vol. Ill, pp. 708-709. 

(5). The number of deaf persons who are eligible to appoint- 
ment by the governor under the terms of this bill is very small. 
Probably not over one hundred have as much as an eighth grade 
education. Possibly ten have gone on to college and four of 
these are now teaching in the school at Delavan. 
Vol. Ill, pp. 713-714. 

IV. These schools can be made educational institutions in 
name as well as in reality w'ithout the creation of another board, 
and retaining them under the present management. 

(1). The fact that these schools are properly educational in- 
stitutions can be recognized by adding to the board of control the 
state superintendent of schools. He can be given a voice and a 
vote in the board just as is now done in the board of University 
and the board of Normal school regents. This would officially 
recognize the educational side of their work. The board of con- 
trol visit the institutions more often than do these other boards 
of regents. In educational matters they take the word of the 
faculties just as do the other boards of regents. 
Vol. Ill, pp. 691-694, 710-712. 



74 Supervision and Inspection . of Schools. 

(2). The name of the board of control should be changed to 
the "State Board of Control." In the adjoining- states of Minne- 
sota and Iowa it has this title and it manages not only the pris- 
ons, etc., but it also has control of the finances of the university. 
The. board of control in this s^tate has for years felt that these 
schools for the blind and for the deaf are not charitable institu- 
tions and have championed that idea. 
Vol. Ill, pp. 688^690. 

(3). The name of the school for the deaf should be changed 
from "The Asylum for the Deaf and Dumb" to "Wisconsin State 
School for the Deaf," for the deaf are not dumb and it is not 
properly an asylum. 

Vol. Ill, pp. 709-710; 725-727. 

The following persons discussed this subject: 
L. D. Harvey, President Stout Instituute. 
Vol. II, pp. 489-490. 

S. D.. Conover, Member State Board of Control. ■ 

Vol. Ill, pp. 689-701, 716-731. . ■■ ,. 

E. W. Walker, State School for the Deaf. . . ~ 

Vol. Ill, pp. 701-721-725-726. . . ■ ; 

W. H. Graebner, State Board of Control. 

Vol. Ill, pp. 686-688, 697-698, 722-725, -731. ' 



31EP0RT OF Special Legislative Committee. 75 

STATE UNIVERSITY. 

Business System of State Univer.ity Inspected. 

At the hearings on the hill for the State Board of Education, 
'there was some unfavorable criticism of the business manage- 
ment of the state university. On the invitation of President 
Charles R. A'an Hise, your committee visited the state univer- 
sity and made a brief inspection of its business system. The 
•committee engaged Mr. Q. S. Snyder, accountant, to examhie the 
records in the business department of the University and make 
report thereon. The report of Mr. Snyder was accepted, and is 
as follows : 

Hon. James H. Stout, Chairman, 

Special Joint Coiinnittcc on Education. 

Dear Sir : — L'^pon the invitation of your committee I have 
visited Machson with several members thereof, for the purpose of 
ascertaining the status and efficiency of the present system of 
accounting in use at the University of \Msconsin and its various 
iillied branches. 

During my stay in ]\Iadison I called at the following offices : 

Office of the Secretary of State, 

Office of the President of the University, 

Office of the Board of Regents. 

Office of the Agricultural Building". 

In addition to which I also obtained some considerable infor- 
maltion from the heads of several minor departments and from 
inspecting the records kept under their supervision. 

The system now in use at the University was installed by The 
Security Audit Co. of New York City on June 30, 1907. On 
June 80th. 1008. an audit was made by the same people, who also 
at this time, supervised the taking of a complete inventory of all 
the property around and belonging to the University and placed 
it upon the books kept by the regents. 

On June 30th. 1909, another actual physical inventory of all 
property was taken by the regents and the figures placed upon 
the books a cursorv examination of which showed that the same 



76 Supervision and Inspection op Schools. 

was carefully taken and liisted in detail, showing each and every 
piece of property said to be found on the premises at a stated 
value, togelther with the real estate and buildings, account show- 
ing additions during the year. In this connection the University 
seems to have a very complete, accurate and commendable sys- 
tem. 

The disbursements are all made by the state treasurer after 
being duly certified to the secretary of state by the regents. This 
method is adhered to withoult exception and no instance of leaks 
or variation were discovered. Each original requisition for ma- 
terials is signed by the professor or head of the department from 
which it is ordered, also by the dean and president, and must 
further bear the approval of three members of the board of re- 
gents; upon receipt of the goods the invoice is signed by the 
party receiving the goods and passed on to ofiicials and clerks to 
be O. K.'d as to price and extensions. This part of the Univer- 
sity's business seems to be well organized and to bear all the 
indications of careful business policy. 

In regard to the receipts, the greater part of these, which are 
handled by employees of the regents, come from fees and from- 
the Agricultural Department. Both these departments employ 
various checks and safeguards, which on the whole seem very 
good. The various state appropriations for the year ending. 
June 30th, 1909, were checked out and especially the appropria- 
tion for the Woman's Building, amounting at that date to $200,- 
000.00. All the amounts were found to be properly charged,, 
which on June 30th, 1909, amounted to $135,402.79, leaving a. 
balance in this fund of $64,597.21. The complete cost and equip- 
ment of this building will probably exceed this balance by $20,- 
000.00 

A comparison of the prices at which the Regents purchase 
their supplies showed them to be as favorable as those obtained by 
any business house buying in like quantities. At the present 
time they are paying $1.47 per barrel for Marquette cement, de- 
livered at Madison, and in the last three years have paid as high 
as $1.65 and as low as $1.40 per barrel delivered. They are pay- 
ing $4.30 per ton for Mine Run Pocahontas coal delivered in 
their bins at the heating plant and $2.55 per ton for No. 4 Wash 
Nut coal from Carterville, III, fields, delivered in Madison.. 
These are fair examples and seem quite as low as could be ob- 
tained. 



Report of Special Legislative Committee. 77 

With respect to the system in general. 1 would consider its 
detail and general plan of organization very good and nowhere 
did carelessness and indifference seem to be in evidence. Better 
statistical results could, however, be obtained by the operation of 
a general ledger, on which could be brought a summary of ail 
the receipts and expenditures of the various departments, and 
having a balancing feature, the proof of which will be the amount 
of cash remaining in the treasury. This would enable a more 
comprehensive review of the University's transactions and keep 
the same before the board in a permanent form. 

I believe much valuable and interesting information could be 
obtained from further classification and tabulation of the results 
now being furnished by the various departments of the Univer- 
sity. 

The receiving department could also be inproved by the en- 
largement of the present storehouse and placing it in charge of a 
general receiving clerk, whose duties it would be to receive all 
goods delivered to the University, instead of their being delivered 
by various draymen and merchants to the departments direct and 
allowing the head of each department to sign the invoices show- 
ing receipt of his own goods, which sometimes may not be done 
for several days after the delivery of the goods. 

I would also suggest that all employees entrusted with tlie 
handling of any money be placed under surety bond, as in the 
Agricultural College and Dairy Farm several persons are now 
liandling considerable sums of money, against whom the regents 
are not protected. 

It is to be understood that the foregoing is not an audit, but 
represents only the writer's conclusions', based on actual observa- 
tion and experience. 

Yours faithfully, 

Q. S. SNYDER. 
Milwaukee, Tan. 21, 1910. 



LIBRARY OF CONGRESS 



020 313 003 A 










